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FORWARD >>>

TOLEDO

Comprehensive Land Use Plan City of Toledo

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[Cover Page Photo Source: Metroparks; Inside Cover Photo Source: Arts Commission | Ben Morales]

FORWARD TOLEDO Comprehensive Land Use Plan City of Toledo

Acknowledgements

Wade Kapszukiewicz, Mayor

City Council Members John Hobbs III, District 1 Adam Martinez, District 2 Theresa Gadus, District 3 Vanice S. Williams, District 4 Sam Melden, District 5 Theresa Morris, District 6 MacGregor Driscoll, At-Large Carrie Hartman, At-Large Brittany Jones, At-Large Nick Komives, At-Large Cessandra McPherson, At-Large George Sarantou, At-Large

Executive Committee Members Rosalyn Clemens, Department of Housing & Community Development Kenneth Fallows, Former Plan Commission Brandon Rehkopf, City Plan Commission David Mann, Lucas County Land Bank Sam Melden, City Council Joshua Murnen, Lucas County Land Bank Karen Poore, Deputy Mayor Tina Skeldon Wozniak, Lucas County Commissioner

Planning Commission Members Brandon Rehkopf (Chair) Kristopher Ball (Vice Chair) Eric Grosswiler Rachel Momenee Emory Whittington III

Plan Commission Staff Thomas C. Gibbons, Director Lisa Cottrell, Deputy Director Joshua Lewandowski, Senior Planner Ryne Sundvold, Senior Planner Mara Momenee, Planner Logan Dickson, Intern Safakat Siddika, Intern

Consultants Toledo Design Collective Jonathan Latsko Molly Burns

Leadership Toledo Signature Program Danny Royer, Libbey Jay Smith, The Anderson’s Allie Greiwe, ProMedica Michael Kolena, O-I Glass Taylor Fitchpatric, TARTA Alex Simmons, Rehmann

An additional acknowledgement to all the community stakeholders and City staff who assisted in the building of Forward Toledo. This includes those who attended meetings, provided input through surveys, shared Forward Toledo events and activities with others, reviewed drafts, offered comments, and added content. A special thank you to the staff of the Toledo-Lucas County Plan Commissions, former and present.

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Acknowledgements

Individual Committee Members

Place Robert (Bob) Mendenhall, Toledo Public Schools Malcom Cunningham, Ebeid Center Andrew Newby, AVATAR & Toledo Spirits Kenny Farrar, JumpStart Margie Traband, University of Toledo Chad Olson, Lucas Co. Dept. of Planning & Development Lee Daher, IN/KY/OH Regional Council of Carpenters (IKORCC) David Zavac, Congresswoman Marcy Kaptur

Build Mike McIntyre, Maumee Valley Habitat for Humanity Ambrea Mikolajczyk, Ark Restoration Adam Martinez, Toledo Hispanic Credit Union Brandon Sehlhorst, Dept. of Economic Development Elizabeth Ellis, Toledo Design Collective Andy Knopp, Thomas Porter Matt Lewandowski, Lewandowski Engineers Ryan Miller, Reichle Klein Group Stephanie Shackelford, Lucas County Land Bank Joe Marck, IBC Properties

Play Michael Lyman, First Hospitality Jennifer Van Horn, Toledo Zoo Steve Atkinson, Toledo Bikes Joe Fausnaugh, Dept. of Parks & Youth Services Ryan Bunch, United Way Toledo Mike Deetsch, Toledo Museum of Art Steve Miller, Huntington Arena/ Glass City Center Shannon Hughes, Metroparks Toledo Amelia Gibbon, Reinvest Toledo Taylor Burciaga, Sofia Quintero Art & Cultural Center

Sustain Heather Judge, LEED AP, SSOE Tim Bockbrader, LEED AP, EDGE Melissa Hopfer, Lucas Co. Sustainability Commission Rob Krain, Black Swamp Conservancy Cathy Schrein, Somerset Env. Science Dept. Erin Claussen, Toledo Revival & Preserve! Toledo, Heritage Ohio Amy Stone, Ohio State University Extension Yvonne Dubielak, Toledo Grows Amy Abodeely, Toledo Lucas Co. Health Dept.

Move Rachel Momenee, The Collaborative Lance Dasher, TMACOG Keith Webb, We Are Traffic Aaron (Babar) Stelzer, Div. of Engineering Services Sean Burnett, Div. of Transportation Sean Smith, TARTA Katie Hunt Thomas, The Ability Center of Greater Toledo Richard S. Martinko, Richard Martinko Consulting

Ordinance

Adopted by Ordinance 430-24 on September 11, 2024.

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4 FORWARD TOLEDO PREFACE

Table of Contents

• Mayor’s Letter 6

• Introduction 7

• Planning Process 12

• Public Participation 19

• Overview of Five Themes 26

• Plan Goals 31

• Build 33

  • Promote Housing Variety 34
  • Historic Impacts on Neighborhoods 37
  • Improve Decision-Making 40
  • Quality Design 43
  • Create Unique Places 47
  • Building Preservation 53

• Move 59

  • Increase Connectivity 60
  • Support Public Transit 63
  • Expand Right of Way Use 66
  • Logistics Hub 70
  • Walkable Neighborhoods 74
  • Accessibility Opportunities 77

• Place 81

  • Attractive Place to Live 82
  • Strengthen Neighborhoods 86
  • Addressing Housing Affordability 89
  • Business Creation 93
  • Funding Big Ideas 97
  • Expand Areas for Manufacturing 100
  • Workforce Opportunities 103
  • Inclusive Communities 107

• Play 111

  • Park Access 112
  • Support Creative Economy 116
  • Promote Recreational Opportunities 119
  • Highlight Regional Tourism 123
  • Support Childhood Development 127
  • Encourage Social Opportunities 130

• Sustain 133

  • Water Belt 134
  • Reduce Pollution 137
  • Healthy Food Access 141
  • Promote Native Plants 145
  • Preserve Open Space 149
  • Improve Tree Canopy 153
  • Energy Efficient Development 156

• Future Land Use 159

• Future Land Use Designations 168

  • Low Density Residential 171
  • Neighborhood Residential 172
  • Neighborhood Mixed-Use 173
  • General Commercial 174
  • Downtown 175
  • Low Impact Industrial 176
  • High Impact Industrial 177
  • Park Land 178
  • Public Space 179

• Special Categories 180

  • Institutional 180
  • Utilities 181
  • Water Belt 182

• Implementation 183

• Appendices 202

Mayor’s Letter

Dear Toledoans:

I’m excited to present Forward Toledo, a roadmap for Toledo’s future. In these pages you will find the goals and strategies that will guide Toledo’s development over the next ten to twenty years. These priorities will shape our city in ways we can only begin to imagine. Toledo’s bicentennial is in 2037, and I believe that with this document we are positioned to be a city where more and more people choose to belong: an inclusive and equitable city.

Your vision, our action: Forward Toledo reflects the aspirations of thousands of residents and stakeholders from all corners of our community. I’m grateful for everyone who participated in its creation, and I value the partnerships we’re building to bring this vision to life through the implementation of this plan. Partnerships that will not only expand on the many great things the city has accomplished, but a broader collective responsibility to move our city forward and preserve it for future generations.

Vision Plan: This Plan’s vision is for a future Toledo that will encourage density and more options for housing, transit and alternative modes of travel, walkability and sustainability. Focusing on all areas of the city, this Plan aims to preserve the historic character and vision of our neighborhoods while promoting quality developments that will support existing planning efforts.

Hopefully, you will see as I do that Toledo’s future is bright!

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Sincerely,

Wade Kapszukiewicz Wade Kapszukiewicz Mayor of Toledo

Introduction

Forward Toledo is a document that will guide development and planning in Toledo for the next decade and beyond. It is our community’s collective statement on who we want to be and how we would like to grow as a city.

This is the third time Toledo has completed a land use plan. The last two plans were completed in 1951 and 2000. Planning on this level allows the City to evaluate and prioritize big picture goals and outcomes while taking active steps to achieve them. The smallest decision now can have a profound impact down the road, which is why planning is important. Without a plan, many opportunities for improving the City are easily missed.

Ideally this type of planning would occur more frequently. The fact that it has only happened two other times in Toledo’s history underscores the unique opportunity the community has to shape the priorities of the city for years to come. It is also a chance to reflect and learn from previous planning efforts to ensure this plan achieves its goals.

One lesson learned is that previous plans had many goals with narrow definitions of success, which made them difficult to achieve (e.g., “Toledo’s population will approach 400,000 by the year 2020.”). In addition, former plans gathered substantial public input that shaped the final document, but the plans did not clearly demonstrate the ways this input influenced the plan.

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[Toledo completed two previous land use plans in 1951 and 2000.]

“Without leaps of imagination or dreaming, we lose the excitement of possibilities. Dreaming, after all is a form of planning.”

-Gloria Steinem

Introduction

The Forward Toledo plan: 1) more directly incorporates public input into plan priorities (e.g., feedback as votes) and 2) increases success by building around broader goals and strategies. This approach allows a wider range of paths to successfully implement goals and it offers greater collaborative potential. These ideas will be explored in more detail throughout the plan (See Goals section).

This planning effort was kickstarted with an exploratory assessment for Toledo, completed by the Smith Group in December 2020. It explored local data along with national trends and made five recommendations for this comprehensive plan. Those ideas heavily influenced the initial goals of Forward Toledo.

It is important to note that while Forward Toledo explores a wide range of topics (e.g., economic development, tourism, the environment, childhood development), it is primarily a land use document. Many of these topics are vital for the success of a community, but their implementation frequently happens outside of planning, zoning, and development.

Toledo’s demographics follow the declining trends across the Midwest. According to Decennial Census data, between 2000 and 2020 the population declined by 42,748 from 313,619 to 270,871 (a 13.1% decline), and housing units decreased by 7,817 (-5.5%). Lucas County as a whole saw a smaller population loss from 446,158 to 431,279 (-3.4%) and it experienced an increase in 3,888 units (1.9%).

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[The five strategies of the Exploratory Assessment: Driving Mobility, Return to Glass City, Toledo Innovation City, Urban Village, and Water Belt City.]

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Population by Census Tract

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Housing Units by Census Tract

The majority of the losses in Toledo have occurred in central city neighborhoods where some of the oldest housing stock exists in the City. Many of these neighborhoods face challenges supporting new single-family housing.

The stabilization of central city neighborhoods is crucial if Toledo is going to meaningfully address its population decline. There is momentum and opportunity near downtown Toledo, where most of the growth in new units and population has occurred. This activity can serve as a stabilizing anchor for adjacent neighborhoods. A great example is the redevelopment activity occurring along Summit Street in Vistula, north of downtown. Stabilization is also happening around housing partnerships like in the Junction neighborhood with the Junction Coalition, City of Toledo, and Habitat for Humanity.

[The census tracts with the lowest populations and fewest housing units are primarily found in central city neighborhoods. Population (left) and housing (right).]

Development activity brings many positives, but also challenges as the cost of housing generally increases throughout the area. This has the potential to displace many residents who have called these older neighborhoods home as rents rise to keep up with new development activity. Forward Toledo includes recommendations and strategies with this concern in mind.

Introduction

City of Toledo Race Demographics (2020)

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Demographically, the biggest racial change over the past twenty years was the increase in the percentage of African American residents and those with two or more races at 16%, offset by a decline of white-only residents.

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[African American residents and those with two or more races become a larger percentage of Toledo in 2020. Source 2020 Decennial Census]

Type of Households in the City of Toledo, 2000-2020 (Decennial Data)

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[One person households make a larger overall percentage of Toledo residents in the past 20 years. Source: Decennial Census.]

Introduction

Another significant change during this period was the increase in the number of one-person households. Family households declined 19.2% between 2000 and 2020, while one-person households increased 5.9%. They also make up a larger percentage of all households in Toledo at 41% compared to 27.6% nationally for 2020. This shift in single person households doesn’t account for all of the family household decline, but it does reflect a broader demographic trend occurring nationally. Toledo’s smaller and more affordable housing stock appeals to single occupants or non-traditional households, compared to families looking for more space and amenities found in newer communities. The availability of land in central city neighborhoods around downtown can help address new housing options. This becomes an opportunity to increase the appeal of living in Toledo by capitalizing on the proximity of downtown entertainment and easy access to the waterfront.

While Toledo isn’t without its obstacles, the data also reveals exciting possibilities. If Toledo is going to address its population decline it cannot maintain the same policies and ideas that led to this situation. That is why the Forward Toledo plan, informed by residents, businesses, and local experts, outlines 33 goals and over 100 actionable strategies. This roadmap reflects our shared priorities and paints a vibrant picture of Toledo’s future.

"Affordability and updated housing is an important part of moving Toledo forward. Making connections to our waterways for people. Developing sustainable infrastructure that is connected to greenways."

-Resident

Forward Toledo Survey Response

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Planning Process

As a result of the Exploratory Assessment (see Introduction), a model for the Comprehensive Plan was created using the five identified strategic opportunities.

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The Forward Toledo team avoided planning terminology when summarizing the themes of the plan in order to make this plan accessible to the widest audience possible. Five Themes: Build, Move, Place, Play, & Sustain were selected to show the interconnected nature of the ideas within the plan.

Planning Process

The planning process began in Fall of 2021 with an Executive Committee, comprised of members from various administrations of City and County Government; » Office of the Mayor » Toledo City Council » Toledo City Planning Commission » Dept. of Housing and Community Development » Lucas County Commissioners » Lucas County Land Bank

The Executive Committee provided high-level guidance throughout the planning process from the Exploratory Assessment to the Forward Toledo document. Smaller sub-committees were created for each of the five themes and included individuals knowledgeable of the subject field. These sub-committees met over a six-month period to discuss and prioritize the ideas, goals, and strategies for each theme. The intent was to provide a starting point for seeking public input. Nearly 50 individuals were involved in helping to shape and inform the discussion for public engagement.

Each of the Goals and supporting strategies are connected to land-use planning and included maps/data figures/case studies to “set the stage” in public discussions. Once the goals and strategies were drafted by the committees, the Forward Toledo team began public engagement through neighborhood meetings and community outreach, as discussed in the Public Participation section.

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Planning Process ≫≫≫≫

Forward Toledo Timeline

July, 2020 – Dec, 2020 Complete Strategic Assessment “Forward Toledo”

Nov, 2021 – May, 2022 Host Committee Meetings Determine Initial Priorities

Sep, 2022 – Jan, 2023 Host Public Meetings Engagement & Feedback

May, 2024 – August, 2024 Public Feedback on Plan Finalize Plan Adoption by City Council

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Jan, 2021 – Oct, 2021 Prepare Data Establish Committees

June, 2022 – Aug, 2022 Finalize Initial Priorities Prepare Public Meetings

Feb, 2023 – Apr, 2024 Analyze Results Host Final Public Meetings Prepare Draft Plan

Plan Adoption Process

60-90 Day Process including a public comment period.

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After public participation, a formal draft of the plan was constructed and presented for a public comment period (45 days) following the plan adoption process. The plan was reviewed by the City Plan Commission, Toledo City Council, and the Mayor’s Office before being adopted as the city’s third Comprehensive Plan.

Public Participation

For Toledo, By Toledo, Forward Toledo.

The Forward Toledo plan included a nine-month process for public input starting with a media press conference in September 2022. The focus for outreach was to think beyond traditional public engagement, with the aim of increasing accessibility by meeting people where they are already active or present. A total of 39 different engagement events were held, ranging from presentations at neighborhood meetings to temporary pop-ups at community events. An overview of the themes and goals of the plan was discussed and the public was encouraged to provide input online or through in-person surveys. Public input was assessed as votes that helped support and prioritize the goals and strategies of this plan.

The Forward Toledo team also published materials to encourage public input throughout the community at “Third Places”. This included coffee shops, restaurants, libraries, community centers, laundromats, breweries, taverns and farmers’ markets. This allowed for a wider reach and raised awareness about the planning process.

The following page features some of the outreach methods used.

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[Forward Toledo press conference. Source: The Blade]

Third Places: refer to the informal public gathering spaces that exist outside of the two primary domains of life: home (first place) and work (second place). Examples include cafes, libraries, parks, community centers, and bookstores. These spaces foster social interaction, community building, and civic engagement.

-Sociologist Ray Oldenburg, “Third Places: A Sociological Concept for Vibrant Communities”

Public Participation ❯❯❯❯❯

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[Source: Plan Commission]

Getting the word out

English and Spanish Language posters, business cards, and tri-folds were hung up in third spaces across Toledo. From community centers, to restaurants, to local businesses, residents and visitors were encouraged to engage and give input.

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Print media

Ads were run in the City Paper and The Historic Times to help reach more Toledoans.

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Social Media

Social media posts were an opportunity to both inform and encourage discussion during the planning process.

Public Participation

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Talking to Toledo

Tables at pop-ups at local community events let planning staff and volunteers hear more from the community.

[Source: Plan Commission]

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Gathering feedback

Paper and electronic surveys in both Spanish and English language were made available with drop off-points at local libraries and community centers.

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Public Participation

Public Input Survey

Forward Toledo provided multiple avenues for public input: online or physical surveys, an online interactive map, website or email feedback, and in-person community workshops. Online and physical surveys were distributed through flyers, posters and tri-fold pamphlets with QR codes at over 100 locations across the city (see map to the right). Digital newsletters and survey links were also sent to committee members, community partners, and neighborhood associations.

Survey drop-off boxes were installed at each of the fourteen (14) Toledo-Lucas County Public Library branches within the City and three (3) Community Centers. Additionally, surveys and public input materials were provided at thirteen (13) neighborhood group meetings, eight (8) pop-up events, eight (8) public information sessions, and three (3) press events to help engage the public.

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[A map of locations Forward Toledo information was distributed.]

City of Toledo 3h · 🌐

In order to engage with a broader audience and demographic, the Forward Toledo team utilized social media to increase the awareness of the public engagement process. Working with a local videographer and producer (Nick Corbin Productions), an introduction video was created to generate excitement about the plan and to provide input on this “once in generation” planning process.

The City of Toledo Marketing and Communications Department also collaborated on a social media campaign to promote the plan across the City’s social media accounts, including Facebook, Instagram and X (formerly Twitter). Thirty-four (34) posts were made over the campaign with more than 12,000 interactions and 4,713 engagements (data only from Sept. 9 – Oct. 26, 2022), with 1,051 video views and 471 post link clicks (Source: Tag Performance).

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David B.: “We should be pushing the river/lake health and tourism etc way more than we are now. It’s a highly underutilized asset.”

Public Participation

13 Neighborhood Meetings Meetings were conducted with local neighborhood associations and community organizations.

8 Pop-Up Events Informal pop-up tables were set up at entertainment events (e.g. Mudhen’s game) to engage with residents about ideas and concepts of the plan.

8 Community Events Formal presentations to community members about the goals and purpose of the plan through a series of information sessions.

3 Press Events A kick-off press conference, media briefing, and a television interview were utilized to create awareness and reach a broader audience.

7 Community Workshops Upwards of 300 residents of Toledo provided direct input on the plan’s goals and strategies.

17 Dropbox Locations Residents were able to submit public survey responses through in-person drop-off locations at public places.

370 Public Map Inputs A combination of both physical and digital maps were made available for the public to add input on land uses

3076 surveys Public surveys on the general plan themes and goals were collected from both online and in-person submissions.

Leadership Toledo

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To further expand the plan’s reach among a younger demographic, the team also applied and was selected as a session project for the 2022-2023 Leadership Toledo Signature Program class. Through the Signature Program, class participants develop a deeper understanding of the region, its strengths, and the issues it faces with the ambition to enhance the community for the better.

As part of the Signature Program, participants had the opportunity to select a 10-month session project to apply their skills and use them to improve and enrich the community. The program team selected to work on Forward Toledo, specifically to (i) assist in gathering high-quality survey responses with a target to exceed 3,000 and (ii) to summarize the resulting survey data into the top community priorities.

The final report, “Summary of Survey Results”*, provides a summary of the survey analysis and work completed by the Signature Program team over the 10-month period. The full report and analysis provided a different “outside city planning” perspective that is supportive to the plan’s overall development and implementation.

*Full “Summary of Survey Results” Report provided in Appendix D.

Public Participation ❯❯❯❯❯❯

Public Input Survey Results

In total, the public outreach campaign resulted in events that reached over 1,600 attendees, with 3,000+ surveys completed, 400 points added to the community input map, and numerous online comments and emails received. The infographic below indicates the demographic breakdown of survey participants and geographic location of survey participants. Across both parameters of age and annual income, there is representation in each adult age cohort. Additionally, the race and ethnicity of respondents (*if provided) is reflective of 2020 U.S. Decennial Census statistics for Toledo. Prominent zip code areas for survey participation included West Toledo and South Toledo.

Having a comprehensive representation of public input is critical in guiding an inclusive and equitable land use plan. Although those who took the survey only represented a portion of those who provided input, the Forward Toledo team was overwhelmed by the amount of support and participation received from over 5,000 participants who engaged with the planning process.

Who’s giving input?

Demographic Breakdown*

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To get an idea of how Toledo should look in the future, it is important to make sure the voices heard in this plan are as diverse as the City.

Goals & Strategies

Ranked from Public Input Survey Results

From the more than 3,000 surveys submitted, analysis was completed on the topmost selected goals and strategies created by the committees. There were opportunities for detailed answers in the topical surveys that provided additional context behind the public’s thought process. Those answers and the overall rankings will help shape the priorities and implementation of Forward Toledo. Below is a selection of qualitative comments received with the top 10 goals prioritized by the public input surveys.

Top Priority Strategies

Below are the strategies which receive the most support from survey votes, as noted in parenthesis, categorized by theme.

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Additional Survey Responses

“We need to rethink our attitudes toward pollution and the role we can play in reducing it.”

“If Toledo wants to get back to 300,000 residents, it will need new housing; and not just ‘affordabe’ housing.”

“Gradual push to mass transit. Make it so people do not need to drive. Concentrate on a tight, little area. Really perfect it and it will serve as the model. Shrubs and greenery in any unused places.”

Public Participation

Community Workshops

In the Spring of 2023, after the completion of the public input survey analysis, the Forward Toledo team worked with the Toledo Design Collective to host seven (7) interactive community workshops around the City. The workshops were conducted to present the goals and strategies based on the survey results and provide additional opportunities for engagement. The aim of the workshops was to allow the public to interact with all proposed goals in the plan. If citizens or members of the public had not engaged with the survey, this allowed them to see the overall responses from the public and formulate their own ideas on how to achieve the goals and strategies.

The workshops consisted of three stations with a mapping component at the end. The stations provided increasing levels of complexity starting with an overview of different land uses, moving to related goals, and then to related strategies. Participants could choose particular land use categories that interested them or they could work through each category. The final step was interacting with a proposed future land use map using the categories explored in the activity. Participants would use their knowledge of specific areas to make suggested changes.

Over the course of two months in April and May 2023, more than 300 attendees participated in the community workshops, submitting over 800 responses on potential priorities for the goals and strategies in the plan. Notices were sent in the physical mail to nearby residents, through postings at libraries and other community spaces, and online postings through social media.

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Public Participation

Goals & Strategies

Ranked from Community Workshops

From the more than 800 responses submitted at the community workshops, analysis was completed on the topmost selected Goals and Strategies from public input. Quantified similarly as the public input survey results, the 33 Goals were then ranked in order based on community workshop input with the top 10 listed below. The feedback we received was incorporated with the survey data and helped shape the priorities from the plan in the implementation section.

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Public Participation »»»»»

Future Land Use Map Input

As part of the public engagement process, an interactive mapping component was utilized to gain input on the Future Land Use Map. As shown in the images below, the Future Land Use Map was used as a basemap for public input to be added via online interactive map comments and in-person community workshops. The input provided was then utilized in determining future land use category designations on the Future Land Use Map (see Future Land Use section). From the online interactive map, nearly 400 points were added to the map with almost 100 points being added from the community workshops.

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Comments from community workshops – 90 points

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Comments from interactive map – 399 points

[Source: Plan Commission]

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Key Findings on Future Land Use Map input: » Demolish or restore abandoned buildings. » People want to see more mixed-use development. » More recreational opportunities. » More greenery and beautification. » More walkable neighborhoods. » Promote housing variety. » Support Public Housing.

COMPREHENSIVE LAND USE PLAN 25

Overview of 5 Themes

The goals of this document are organized into five areas or themes. These pages are the primary focus and emphasis of this plan. Each theme has a series of associated goals, and every goal page includes supporting analysis and data on its importance, as well as a list of potential strategies for implementation. The ideas contained within this section were designed to be broad enough to have applications not only for planning and development in Toledo, but for other organizations, governmental departments, businesses, neighborhoods and residents.

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BUILD MOVE PLACE PLAY SUSTAIN

Overview of 5 Themes

BUILD >

Focus: Development, Placemaking, Building Preservation

Description: Build addresses housing through increased units and incentives. It prioritizes placemaking and preserving the distinct neighborhoods and buildings that make Toledo unique, with an emphasis on quality architecture for new buildings. This section also highlights how development has been imbalanced for many of Toledo's neighborhoods and ways to enhance equity.

Goals: » Promote Housing Variety » Historical Impacts on Neighborhoods » Improve Decision-Making » Quality Design » Create Unique Places » Building Preservation

Relevance: » Architects » Developers » Housing Advocates » Neighborhood Groups » Business Owners » Economic Development Professionals » Residents

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MOVE >

Focus: Transportation, Connectivity, Accessibility

Description: Move addresses all of the ways one travels throughout the community. It emphasizes a well-connected, accessible transportation system designed with pedestrians, public transit, and non-automobile traffic in mind.

Goals: » Increase Connectivity » Support Public Transit » Expand Right of Way Use » Logistics Hub » Walkable Neighborhoods » Accessibility Opportunities

Relevance: » Active Transit Commuters » Mobility advocates » Bus Riders » Neighborhood Groups » Business Owners » Residents » Engineers

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COMPREHENSIVE LAND USE PLAN 27

Overview of 5 Themes

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PLACE >

Focus: Housing, Neighborhoods, Economic Development

Description:

Place is the broadest theme and addresses housing and housing affordability, neighborhood strength and vitality, economic development activity, and quality of life issues like education, jobs, safety, and accessibility.

Goals: » Attractive Place to Live » Strengthen Neighborhoods » Addressing Housing Affordability » Business Creation » Funding Big Ideas » Expand Areas for Manufacturing » Opportunity Access » Inclusive Communities

Relevance: » Housing Advocates » Neighborhood Groups » Business Owners » Economic Development Professionals » Educators » Residents

PLAY >

Focus: Recreation, Social Activity, Tourism

Description:

Play addresses the ways residents use land for recreational and social purposes and looks at strategies to strengthen those connections. The role of tourism and art in the region is also explored.

Goals: » Park Access » Support Creative Economy » Promote Recreational Opportunities » Highlight Regional Tourism » Support Childhood Development » Encourage Social Opportunities

Relevance: » Artists » Outdoor Advocates » Tourist Industry » Neighborhood Groups » Business Owners » Residents » Youth Educators

SUSTAIN >

Focus: Green Space, Rivers & Lake Erie, Food Access, Environment, Sustainability

Description: Sustain addresses the environment and the way that development of land and buildings can contribute to or help mitigate pollution and other environmental concerns. Heavy emphasis is placed on the preservation of open space and native plantings, along with strategies to improve the efficiency of development. Connections to food and food access are also explored.

Goals: » Water Belt » Reduce Pollution » Healthy Food Access » Promote Native Plants » Preserve Open Space » Improve Tree Canopy » Energy Efficient Development

Relevance: » Environmentalists » Ecologists » Outdoor Advocates » Architects » Neighborhood Groups » Business Owners » Residents

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Overview of 5 Themes ≫≫≫≫≫

Related Plans

The ideas contained in the plan do not occur in isolation. The following examples highlight some of the work that has occurred in the City and its relationship to the Forward Toledo Plan.

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Together Toledo, published by the City of Toledo Department of Neighborhoods, provides a guiding framework for improving housing opportunities within the city over the next 10 years. This document reflects many of the goals within Forward Toledo, including increasing housing affordability, diversifying housing, and advancing racial equity.

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TARTA and Forward Toledo both aim to increase mobility options for Toledo residents through supporting improvements in the City's public transit system. As TARTA responds to shifting demographics and changes in the way we live, work, and travel, Forward Toledo can offer support through promoting housing density, transit-oriented design guidelines, and public infrastructure.

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LISC Toledo's 2020-2025 Strategic Framework shares Forward Toledo's focus on generating new opportunity in disinvested neighborhoods. This includes increasing development and rehabilitation of our community's housing stock, investing in disadvantaged businesses, and building awareness of social determinants of health.

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Toledo Vision Zero reinforces the transportation goals of Forward Toledo, with an emphasis on decreasing the number of traffic-related deaths and injuries in the City. Through strategies like creating more complete sidewalk networks and implementing traffic calming or safety measures, this plan provides a pathway for a safer and more connected community.

There have also been a number of localized neighborhood planning efforts since the previous Toledo 20/20 Comprehensive Plan was approved. These plans were prepared at the neighborhood level and include specific recommendations that are worth referencing as planning efforts continue.

Completed List of Neighborhood Plans:

» Monroe Street Corridor Plan 2003 » Connecting the Pieces 2009 » Cherry Street Legacy Plan 2010 » Dorr Street Corridor Vision Plan 2010 » Toledo Strategic Plan for Arts & Culture 2015 » Middlegrounds Plan 2015 » City of Toledo Bike Plan 2015 » Downtown Toledo Plan 2017 » Warehouse District Plan 2017 » Old South End Master Plan 2017 » Junction Neighborhood Master Plan 2018 » Uptown Master Plan 2019 » Vistula Neighborhood Master Plan 2020 » Monroe Auburn Master Plan 2020 » Garfield Community Plan 2021 » Englewood Community Plan 2022 » Downtown Toledo Plan 2023

Reading This Plan:

The following pages provide background and implementation strategies for each goal of Forward Toledo, organized by theme. Just like all of the parts of a city are connected, the goals and strategies of this plan support each other. The amount that individual goals support other elements is noted at the end of each goal.

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A. The name of each goal starts each section. B. The tabs track the theme for each goal. C. Each goal ends with strategies the city will use to accomplish each goal. A full list of strategies can be found in the implementation section. D. The amount of overlap the goal has with other themes in the plan is indicated by icons. E. Citations and additional resources are listed on the final page of each goal.

[Source: Arts Commission of Greater Toledo - Brad Feinkopf]

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[Source: Lucas County Land Bank]

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BUILD ≫≫≫

Strategies for the design and use of structures with a focus on housing affordability.

BUILD 1

Promote Housing Variety

Promote a diverse variety of well-designed housing to meet the residential needs of all Toledo citizens.

Housing options and costs are a serious concern, especially if Toledo hopes to stabilize and grow its population. The cost of housing is influenced by a variety of factors including: location, housing supply, housing type, and occupancy status. Creative approaches are needed to encourage and incentivize new housing that meets the needs and budgets of all Toledoans and those looking to move here.

The city of Toledo has lost over 14,000 residential structures in the past thirty-five years while new residences were built at only half that rate. Over the past five years there have been fewer than 200 new residential structures built.¹

Part of the challenge with the construction of new housing is cost as this plan points out in the Addressing Housing Affordability goal. The gap between new housing construction costs and affordability in Toledo creates an opportunity to preserve existing housing stock through renovation and rehabilitation in historic neighborhoods. The most affordable home in a community is often the one that is already built.

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[Demolitions in Toledo between 1985-2021. Source: City of Toledo]

Promote Housing Variety BUILD 1

Demographic trends are also shifting demand as households move from families to single occupancy. The ten-year comprehensive housing plan completed in 2021 by the City of Toledo found that 65% of homes within the city are detached, single-family structures. The plan estimates that two out of every five single dwelling units are occupied by one person.¹

Providing a variety of housing options would assist with demographic changes while also addressing the need for overall housing units. The housing plan identified the need for an additional 12,705 affordable units in the Toledo area.²

The most common type of new housing project within the City are large apartment buildings. These projects are appealing to developers that can build more units at lower cost, but are often out of place with the surrounding neighborhood due to the size and number of units.

There are a range of housing types that fall between single-dwelling homes and apartment buildings in terms of scale and density. A variety of housing types would provide more affordable housing options while creating additional opportunities for home ownership. Housing types between single-family homes and mid/high-rise apartments are referred to as the “missing middle” because they are not built as often in U.S. cities. This housing does not necessarily need to be new. There are also opportunities to enact policies that support the conversion of existing homes into additional units in parts of the City.

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“Missing Middle’ housing

Promote Housing Variety

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The most appropriate place for these types of developments will vary depending on the community or neighborhood. In Toledo, the focus for missing middle housing is primarily along major roadways, which could be expanded depending on the number of units proposed and how the development impacts the surrounding neighborhood. This is especially true for less intense housing options such as duplexes, triplexes, and quadplexes.

Often the most noticeable impact from less intense redevelopment (e.g., 1-4 units) has less to do with the number of units and more about how it is designed. Communities across the U.S. are finding success addressing those concerns with design standards for infill development. This is a strategy that Toledo will explore.

Housing issues are not likely to improve over time without trying different approaches to address a longstanding challenge facing many communities across the U.S., including Toledo. Incentivizing “missing middle” housing options is one way to address the shortage of high quality, affordable housing in the community.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Promote Housing Variety:

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Partner with homebuilders to better understand their issues or barriers with development.

» Encourage and incentivize affordable housing units as part of new housing developments.

» Revise property lot size requirements to accommodate a wider variety of development projects.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Collaborate on marketing opportunities that promote living in Toledo to a broad diversity of individuals and families.

» Engage neighborhoods in workshops that are focused on explaining concepts from the plan (e.g. missing middle housing).

Historic Impacts on Neighborhoods

Explore the impact of historical policies on neighborhoods in terms of land use, including redlining and cyclical disinvestment, and implement corrective policies.

Historically, development in Toledo has not been equally distributed. Neighborhoods within the central city face repeated problems from disinvestment, leading to a reduced quality of life for residents. Disinvested neighborhoods are often disproportionately near low-income households and communities of color. Areas in the city most at risk from continued disinvestment are identified to the right in the map. The boundary was established by analyzing demolition permits, tax status, and new construction.¹²³

Disinvestment can present itself in many forms: limited access to healthy food, availability of well-paying jobs, high vacancy rates with deteriorating buildings, and crumbling infrastructure. Many of these conditions are the outcomes of historical policies and land use decisions, such as redlining lending practices, urban renewal, freeway construction, and sprawling suburban development with fewer, more expensive units.

However, present policies continue this cycle of disinvestment and must be corrected. One corrective policy explored by Detroit, MI was the idea of “Mix Tape” zoning which focuses on overcoming barriers to development and reinvesting in neighborhoods.

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[A map showing a priority area where demolitions and tax delinquencies are high and new development is low. Source: Toledo Lucas County Plan Commissions.]

Historic Impacts on Neighborhoods

BUILD 2

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Prior to construction of the highway, the Junction Neighborhood was dense, connected, and had a strong mix of commercial and residential uses.

Source: Toledo-Lucas County Plan Commissions

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[Source: Plan Commission]

Historic Impacts on Neighborhoods

The City of Detroit implemented zoning changes that, in combination with other development incentives such as TIF and tax credits, created new entrepreneurial pathways for disinvested neighborhoods. By allowing a mix of commercial and residential uses and minimizing potential needs for variances, Detroit aims to encourage the creation of more desirable land uses along neglected commercial corridors. The goal is to allow easier entry to the market and serve as a catalyst for those willing to be first entrants into an underserved area.¹

The City of Toledo could explore similar policies to “Mix Tape” zoning in historical commercial corridors that have suffered from a lack of investment. Policies would need to be context sensitive to the neighborhood and provide an attractive incentive to invest where others would not.

Another strategy is to track and assess where development is occurring, the type of project, and how incentives are being distributed on a yearly basis. The yearly publication and review of this information would be a positive first step to ensure we are taking equity seriously as a community. Through this review the City can begin to address years of disinvestment by identifying inequitable trends in decision-making. By embracing new policies to address historical impacts, adjusting regulatory processes, and developing new metrics of success, the City can take significant steps to improve Historical Impacts on Neighborhoods.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to address Historic Impacts on Neighborhoods:

» Encourage public investments for the most underserved areas in the City.

» Identify regulatory barriers with developing non-traditional housing.

» Support mixed use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Reduce vacant storefronts in neighborhoods by completing a land use analysis to understand the needs of the local economy.

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Explore “quick permit” zones with an emphasis on underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones).

» Explore efforts to open independent grocery stores and prioritize in areas where vehicle ownership is low.

» Review neighborhood quality metrics (e.g., crime, income, population change) on a yearly basis to track the effectiveness of planning strategies.

BUILD 3

Improve Decision-Making

Promote efficient and effective land-use planning that is proactive instead of reactive.

Planning is a collaborative process that must be forward thinking to be effective. Responding to changes as they appear without considering the broader implications will negatively impact the long term health of Toledo. This is the difference between being reactive and being proactive.

To do this well, proactive land-use planning needs to consider a multitude of factors beyond the proposed development location. It requires understanding the city, its neighborhoods, the needs of the residents and business owners, and an awareness of the national economy, market forces, and other trends.

Case in point: in 1999 less than 1% of retail purchases were made online, by 2023 that had grown to 15.1%.¹ Online purchases are expected to increase in the coming years, resulting in lower demand for brick-and-mortar commercial space. That changes how a community approaches the allocation of land for commercial purposes. Without population growth or wage increases, new commercial spaces shift demand from existing buildings resulting in empty, vacant storefronts.² Awareness of these types of trends can result in better decision-making when considering whether or not to increase commercial space in the City. For that reason, a single zone change can have a ripple effect throughout the city.

One strategy to improve decision-making is the completion of a detailed land use analysis for commercial and industrial space. As explored in the Expand Areas for Manufacturing goal, industrial space is presently in demand. An industrial land use analysis allows the city to explore changes in the land required for expansion by industrial users, and to understand the stock of land available in the City for industrial growth.

Another strategy would be to review industrial land use categories, with a focus on the impact of new and emerging industrial uses. Many modern industrial businesses have lower impacts (e.g. noise, traffic) than in the past and may be appropriate in more locations. The land use analysis combined with revised categories would provide decision-makers with the information needed to make key development decisions and the tools to implement better land-use policies.

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“Toledo should do more to capitalize on our industrial base with emerging technology trends such as semi-conductors, nano-technology, or genetics.” -Michael B.

40 FORWARD TOLEDO GOALS

Improve Decision-Making | BUILD 3

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Zoning codes, subdivision regulations, and other development standards and permitting processes have grown increasingly complex with time.³ However, it is not without purpose: these reviews are important and consider a wide range of impacts such as stormwater runoff, environmental concerns, or broader community issues. The creation of a City development contact who knows the detailed process of permitting would greatly assist in navigating the system and starting a new business in the City. There are also opportunities to review and streamline existing City processes. The City would benefit from a review of these processes which can easily accumulate over time.

The City took steps to address this in 2019 with the creation of the Commissioner of Business Services, but the issues discussed in this page are only a fraction of what that position addresses. A full time development liaison position would be a substantial benefit for the city given the number of issues that can occur during project review.

“Quick Permit” zones, as discussed in the Historic Impacts on Neighborhoods goal, also help to streamline the approval process without sacrificing the quality of new development.⁴ These priority zones would encourage development in struggling areas as a catalyst for larger change while also reducing development time. This will require an adjustment from multiple departments around decision-making, goals, and impacts to rules or regulations. It is worth exploring what might be possible, especially in light of the prioritization of the Support Business Creation goal by the public.

By improving decision-making for land use planning, Toledo can utilize shifting social, economic, and environmental landscapes to its advantage. Rather than awaiting exterior forces to shape Toledo, its residents are empowered to build a city that meets the goals outlined in this Comprehensive Plan.

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COMPREHENSIVE LAND USE PLAN 41

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[Improved decision-making can help to bring vibrant businesses to Toledo’s older buildings. Source: City of Toledo]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Improve Decision-Making:

» Strengthen the relationship between City departments, developers, and small businesses.

» Establish a City development contact that can assist with building permit issues and accelerate the review of projects.

» Explore “quick permit” zones in underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones).

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Create and revise land use categories for modern industrial uses that best support the local economy with minimal impacts on neighborhoods (e.g., number of employees, traffic, noise).

BUILD 4

Quality Design

Explore how design impacts neighborhood perception and analyze past and potential efforts to improve the design of sites in Toledo.

Numerous planning studies have explored the connection between neighborhood perception and the conditions or quality of existing buildings in an area. The general consensus is that design matters.¹ In fact, there are even recommendations that show how certain design features (e.g., storefront windows, lighting) can influence or mitigate crime.²

In 2004, the City of Toledo adopted design standards for new construction projects. The goal was to enhance neighborhood appearance, encourage attractive street fronts, accommodate a variety of travel modes, and create higher quality developments.

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“Commercial centers should be well-lit, safe, and appealing to perspective customers.” -Jess W.

[City of Toledo sites before (left) and after (right) development standards. Source: Google Street View]

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Quality Design | BUILD 4

The results have been successfully implemented in many areas, but more can be done to improve the design of our city. This includes developing standards to promote compact, mixed-use development, supporting multiple modes of transportation, and creating streetscapes that encourage more activity on streets.

Thoughtful design can also help establish unique areas that contribute to placemaking. This is the idea that a well-designed space can create an experience that we enjoy visiting. It encourages a developer to incorporate meaningful design elements from the surrounding neighborhood or establish standards where none exist.

Poor design can also have negative consequences for an area. Denver, CO experienced this with, “slot housing”, a popular building layout used by developers. This style of housing increases the number of allowable units, but does so by orienting a building and parking internally to a site instead of a more traditional street facing design approach.

[Denver, CO aerial images over time. Source: Google]

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2006

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2020

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[Slot house example (left). Traditional design (right). Source: Denver Planning Department]

FORWARD TOLEDO GOALS

Quality Design | BUILD 4

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Although this design provides an increase in housing units, an unfortunate consequence was the loss of neighborhood connection and community. Internal facing developments do not integrate well into an existing neighborhood and create little opportunity for connectivity and social interaction. These projects addressed the critical need for more housing but did so at the expense of the neighborhood.

The top picture on the previous page shows the older aerial with homes facing the street, sidewalk connections, front porches. The bottom picture shows the internal-facing homes that are isolated from the neighborhood.

Denver eventually prohibited this type of housing by requiring certain design elements on the front or street-facing side of the building. Examples like these are an important lesson for Toledo: the goal of increasing housing supply and affordability should not come at the expense of quality design. Development projects regardless of the type (e.g., residential, commercial) need to reflect the neighborhood context and include design elements that contribute to the community.

The Forward Toledo plan identifies multiple strategies to proactively address design quality as new housing and development occurs. Two examples include developing design standards for compact development and incorporating neighborhood identity in local planning projects.

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COMPREHENSIVE LAND USE PLAN 45

Quality Design

A next step for improving design in the city is to periodically survey the recently built projects to ensure design standards achieve the intended effect. Projects could be rated based on how well they met design objectives. As shortcomings are identified in this review process, adjustments can be made to improve development guidelines.

Toledo can achieve a higher standard of development quality. This will become increasingly important if the region is going to retain and attract residents as well improve the quality of life in neighborhoods. Well-designed spaces are part of what is driving the location preferences for younger generations, especially as they age, move, and settle into families and careers.¹

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to achieve Quality Design:

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Perform periodic reviews of completed development projects to identify best design practices.

» Highlight projects that improve bicycle and pedestrian infrastructure (e.g., result in fewer accidents, reduced speeds).

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Identify areas for streetscape enhancements (e.g., street trees, lighting) and coordinate with the neighborhood.

» Prioritize pedestrian design elements (e.g., street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g., slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Update and/or remove minimum parking requirements.

» Require that landscaping include native plantings for all new developments

» Adopt a planting best practice guide to improve plant health.

BUILD 5

Create Unique Places

Review the importance of how well-designed spaces can positively impact or affect the people that live there (e.g., placemaking).

Toledo contains a diverse mix of neighborhoods, each with unique charms and characteristics that are rarely reproduced in present-day developments. The uniqueness of these areas in the city are recognized and appreciated by many of our residents. One of the most popular goals during public input for Forward Toledo was related to thoughtful design and ensuring that the neighborhood identity was included in local planning policy decisions.

The eclectic neighborhoods of Toledo are set apart by distinctive architecture such as the Old West End,

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A Victorian style home in the Old West End

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An arts and craft style home in the Burroughs

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Mixed-use building in the Old South End

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Mixed-use building in Library Village

Burroughs, and Old Orchard. They also include traditional urban design features like historical grid-style street layouts, accommodations for multiple transportation modes, or pedestrian-friendly main streets with mixed-use buildings like those in East Toledo, Library Village, or the Old South End.

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Mixed-use building on Main Street

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A Tudor style home in Old Orchard

Create Unique Places

As redevelopment occurs, there are risks that neighborhoods will lose many of the characteristics that make them so distinct and appreciated. Modern day construction techniques and lower cost designs put pressure on communities to accept less than ideal development projects. This should be discouraged when possible as these types of ready-made buildings may only be occupied for a few years before ultimately becoming vacant and leaving a burden on the local community and city resources.

As discussed in Attractive Place to Live residents that participated in Forward Toledo prioritized sites with distinct urban character. Some of the top reasons cited were the architecture, history or age of the building, versatility or mixed use, and pedestrian-friendly design. This feedback

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reinforces plan goals, including Create Unique Places, to ensure that new buildings are developed in a way that reflects, preserves, and enhances the character in the neighborhood.

The creation of unique places does not only apply to architecture and buildings. Smaller contributions like public art or environmental features provide a deeper integration of the natural environment. The artwork along Broadway Street in the Old South End or the proximity some neighborhoods share to Lake Erie, the Maumee River, or the Oak Openings Region are great examples of this opportunity (see Water Belt or Preserve Open Spaces). This proximity could include the type of development (e.g., marine/water-oriented or more open space/tree plantings) or site features or building designs that reflect elements of the natural environment.

“The Maumee River and Lake Erie are the reasons Toledo came to exist and to flourish. Water should be the theme of all branding of the city. It should be the theme in signage, in tourism promotions.”

-Jesse M.

[Top public priorities for new development. Source: Forward Toledo Survey]

Create Unique Places | BUILD 5

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Projects that integrate public art and natural features into the neighborhood can also support Toledo’s potential as a regional tourism destination. For example, the Glass City River Wall is one of the largest murals in the United States spanning over 170,000 sq. ft. and 28 grain silos along the Maumee River.¹ The mural’s riverfront location is best viewed from the water creating additional opportunities for regional tourism that also highlights our unique natural resource. Tourism can also be supported by connecting other cultural assets and unique areas through dedicated trails, similar to the success experienced in the city of Indianapolis (see Highlight Regional Tourism).

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[Distinct murals located along Broadway Street in the Old South End. Source: Google Streetview]

Create Unique Places —— BUILD 5

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[Image of the Glass City River Wall. Source: Glass City River Wall Facebook]

50 FORWARD TOLEDO GOALS

Create Unique Places

The River Wall is an example of an innovative way to create unique spaces. Creative use of Toledo’s existing assets and structures can turn a blank slate into an engaging amenity for residents and visitors.

Another example worth highlighting is Flyover Park in Alberta, Canada. The city transformed a relatively small and unused space near the highway into a local park with a variety of activities. Internally-illuminated art was also installed which activates the space beyond daylight hours and provides another reason to visit.¹ A project like this demonstrates the endless possibilities for the use of these otherwise idle spaces. The potential for creative and unique uses are limited only by the vision of a community.

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[A before and after look of Flyover Park. Source: Google Maps]

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[Aerial image showing the location of Flyover Park along and partially underneath a nearby highway.]

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[Image showing some of the park features (above) and illuminated light installation (right). Source: Google Works and Project for Public Spaces (right)]

BUILD 5

COMPREHENSIVE LAND USE PLAN 51

Create Unique Places

Larger-scale examples should also be mentioned as potential transformational projects. The Rose Kennedy Greenway in Boston, also known as “The Big Dig”, is one example. There, the city transformed 1.5 miles of highway in downtown Boston into a greenspace corridor for the community using a “highway cap”. The space also includes a number of scheduled seasonal activities which keeps the space activated throughout the year.

The examples provided here help to demonstrate what is possible, while encouraging us to enhance the parts of our City that are worth preserving.

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Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Create Unique Places:

» Identify locations for creative placemaking with an emphasis on disinvested areas (e.g., landmarks or gathering spaces).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Support efforts that leverage Toledo’s potential as a regional tourism destination.

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail) or direct shoreline access along Lake Erie (e.g., Water Belt).

» Identify corridors in the City that would best benefit from road diets and complete street improvements (e.g., fewer automobile lanes, safe space for walking, dedicated bike lanes).

» Incorporate additional design elements that connect people to places such as landscaping, green stormwater projects, or temporary low-cost changes (e.g., parklets or patio space) that improve public space.

» Honor the region’s unique natural features such as the Oak Openings Region and the Maumee Watershed through day-to-day decision-making.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

» Establish priority areas that encourage more open space integration with development projects (e.g., the Oak Openings Region).

BUILD 6

Building Preservation

Strengthen preservation strategies to maintain Toledo’s existing housing stock and commercial buildings.

Stabilizing Toledo’s building stock and finding innovative ways to reduce blighted structures and demolitions is important to maintaining Toledo’s central city neighborhoods. Preservation also supports the architecture and cultural heritage that helps to make the City an appealing place to live. Preserving older buildings can support a variety of housing and business options which are both affordable and unique.

Locally recognized historic districts within Toledo (Old West End, Westmoreland, and Vistula) have standards in place to protect the style and character of the buildings within the neighborhoods. Historic districts also provide an opportunity for communities to provide input on the demolition of older buildings.¹ This helps ensure that all viable buildings and uses are explored prior to removal.

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[Central City Neighborhoods have the oldest building stock in the city. Source: Lucas County Auditor’s AREIS data, prepared by Toledo Lucas-County Plan Commissions]

Building Preservation

RESIDENTIAL PROPERTY VALUES | 2020

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These factors may contribute to the increased success of buildings preserved within historic district neighborhoods. The map to the left shows the difference in property values in and outside of the Old West End Historic District.¹

The preservation of property values has been less successful in the Vistula neighborhood. However, it should be noted that structures within a local historic district benefit from protections, including demolition, that are not available outside of the historic district.

Historic overlays are not a one-size fits all solution to preserving older buildings in the city. Programs designed to support property-owners in their efforts to rehabilitate existing structures are a form of direct intervention to safeguard neighborhoods from losing older structures that could also be considered.

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[Source: Lucas County Land Bank]

[Property values are stable within the Old West End Historic District. Source: Lucas County Auditor's AREIS data, prepared by Toledo Lucas-County Plan Commissions]

54 FORWARD TOLEDO GOALS

Building Preservation | BUILD 6

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The Land Bank has identified more than 8,700 residential properties with failing roofs.¹ More than three-million dollars have been set aside already to begin repairing over seven-hundred residential roofs in the city.² While this is only a fraction of the renovation budget needed for the multitude of neglected structures in Toledo, it represents a first step towards more programs the City can introduce to subsidize housing costs while supporting the economic independence of residents.

Identifying financial resources to support rehabilitation remains a substantial constraint for most communities. In order to support this goal, other funding avenues need to be explored. This could include building investment requirements for structures occupied as rentals or a more aggressive code enforcement department that allocates fines incurred into a housing fund to support development.

Not all of the vacant structures in the city can be preserved. Deconstruction, the act of taking a building apart without damaging the raw materials, offers an alternative to demolition that enables building materials to be reused rather than being sent to landfills or buried. A 1,500 square foot home has the potential to reclaim 4,000 board-feet of lumber and 5,000 bricks, along with sizable quantities of shingles, concrete, siding and drywall.³

A reclaimed material market reduces the cost of rehabilitation of homes which are not planned for demolition. Furthermore, deconstruction pilot programs in Wayne County, Michigan found deconstruction to be 50% more cost-effective than traditional demolition, due to the value of the reclaimed building materials.⁴

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Building Preservation — BUILD 6

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[A building in East Toledo recently renovated for an Art Gallery. Source: City of Toledo]

Developing a deconstruction industry in the City would create a greater supply of goods to restore existing structures, create jobs, and reduce demolition costs. The environmental benefits of deconstruction include reducing the carbon-footprint of new construction due to the use of recycled materials, and a decrease in waste materials entering landfills. The program could be limited in scope, possibly focusing on older structures with higher quality materials based on the year built, building type, and other assessment tools.

“I would love to open a restaurant in [a vacant storefront], but renovation costs make it prohibitive.”

-Ellie A.

As the needs of residents change, so should the way the City approaches older structures. Existing zoning laws, such as parking requirements and limitations on acceptable use make the reuse of historically commercial buildings challenging. Many older buildings were constructed before cars were popular, and therefore provide minimal parking. A strategy to encourage building preservation is reassessing zoning regulations to allow better reuse of buildings, as well as reducing regulations for local entrepreneurs, artists, and homeowners.

The preservation of the past is essential in moving Toledo forward. Successful preservation in the city shows the feasibility of this goal. Preserving buildings can offer diverse and affordable housing options. Stabilizing and redeveloping historic structures provides a sustainable development alternative to new construction. Lastly, the preservation of local history, cultural heritage, as well as art and architecture, contribute to a unique City that can embrace former successes while creating new opportunities for present and future Toledoans.

56 FORWARD TOLEDO GOALS

Building Preservation

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[A view of the Spitzer Building at the corner of Huron Street and Madison Avenue, Source: Lucas County Land Bank]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to increase Building Preservation:

» Establish incentives and policies that encourage people to renovate instead of demolish.

» Expand dollars that prioritize the preservation of existing housing.

» Prioritize housing preservation resources for residents committed to the neighborhood.

» Develop deconstruction legislation to incentivize the preservation of structures and reduce waste headed to landfills (e.g., early 20th century buildings).

» Reuse vacant buildings for shared work space for local entrepreneurs and artists.

» Develop a housing fund to support the construction or maintenance of housing units.

1 City of Toledo, 2023. Toledo Municipal Code. Available here. 2 Lucas County Auditor, 2020. Land Value. Available here. 3 Lucas County Land Bank, 2021. 2021 Toledo Survey. Available here. 4 City of Toledo, 2023. Rooftops Repair Program. Available here. 5,6 Delta Institute, 2018. Deconstruction & Building Material Reuse: A tool For Local Governments & Economic Development Practitioners.

Source: Metroparks

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[Source: TARTA]

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MOVE >>>

Strategies on increasing connectivity, supporting public transit, and encouraging walkability.

MOVE 1

Increase Connectivity

Provide a diverse transportation network that better connects people throughout the community.

The City of Toledo is an automobile focused city with limited alternatives for transportation. Expanding options will be crucial to ensure that we are providing mobility options for all residents while attracting younger generations with changing preferences.

Nationally, younger generations are driving less and moving to areas with more transportation options.¹ Pedestrian and bicycle infrastructure, also know as active transportation, is an important part of this. If the city is going to attract and retain this demographic we will need to reflect these changing values through the built environment.

Overall there is a lack of connectivity in Toledo’s existing pedestrian and bicycle infrastructure, which is one barrier for use. In fact, 80% of our survey respondents agreed this is an issue in their neighborhood.² Seeing this need has catalyzed the Plan Commission to take a more active role in mobility.

The map to the right identifies the missing links in the network where sidewalks (yellow) and bicycle infrastructure (red) is inadequate in the City.

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[Missing Links in Active Transportation Network. Source: Toledo Lucas County Plan Commissions 2022]

Increase Connectivity ____________________ MOVE 1

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The City of Toledo is working to address this through the design and construction of new bicycle infrastructure (trails, paths, bike lanes, etc.) as part of the 2015 Bike Plan, as well as the adoption of a Complete Street Policy.¹

These actions will benefit the City over time, but there are opportunities to bridge the gap in the short term as well. Utilizing the existing network of roadways could fill in the gaps while providing safe, accessible, and convenient areas to walk or ride.

Cities like Pittsburgh and St. Louis have successfully utilized local residential streets with slower speeds and less traffic to create a citywide network of bicycle infrastructure, called “bicycle boulevards”, through simple improvements such as navigational wayfinding signage.

Bicycle boulevards or neighborhood greenways allow the existing streets to be redesigned and designated for pedestrian and bicycle traffic. Streets with a speed limit less than twenty-five miles per hour (<25mph) with continuous connection through the city become safer and convenient to access from neighborhoods and residential areas.

Expanding mobility options throughout the city benefits everyone: from residents moving around the city to visitors who want to experience the city at a slower pace. Additional implementation and prioritization of Toledo’s mobility plans and policies, along with shorter term solutions, will provide a viable alternative to motor vehicle traffic. This is an option that more people are seeking, especially younger demographics which we seek to attract.

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COMPREHENSIVE LAND USE PLAN 61

Increase Connectivity

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[A new trail provides connection through Swan Creek Metropark. Source: Metroparks]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Increase Connectivity:

» Identify locations for wayfinding signage and gateways in neighborhoods.

» Improve outcomes for projects by engaging the public earlier in the planning process.

» Support the creation of design guidelines for constructing bikeways and traffic calming devices and techniques (e.g., roundabouts, bump outs, trails, lights).

» Prioritize pedestrian design elements (e.g., street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g., slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Highlight projects that improve bicycle and pedestrian infrastructure (e.g., result in fewer accidents, reduced speeds).

» Identify a network of slower residential streets that could be repurposed to encourage a range of transit options and increase overall connectivity

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (, trails, parks) or more populated areas.

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

» Strengthen access between schools and public parks.

» Identify neighborhoods where social infrastructure (e.g., gathering spaces, community centers, parks) is lacking and prioritize land uses that benefit residents’ quality of life.

» Leverage existing city and regional bike trails through increased maintenance, promotion, and provision of amenities (e.g., trash cans and benches)

MOVE 2

Support Public Transit

Promote public transit through policies that encourage more housing units along key transportation corridors.

Promoting development that increases the viability, efficiency, and desirability of Public Transit is essential in the City of Toledo. The ability to move around the city freely limits how Toledoans can access jobs, goods, services, and social opportunities. A strong transit network not only allows greater access to the city for people without personal vehicles, it also reduces traffic, provides alternative options, and lowers vehicle ownership costs for Toledoans with cars.

Public transit in the City is provided by the Toledo Area Regional Transit Authority (TARTA). TARTA provides fixed-route bus service and accessible para-transit service to metro-Toledo residents. According to their 2021 Report to the Community, 81% of TARTA riders do not have access to a personal vehicle.¹

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Census data shows that public transit is not relied on to the same extent across the city. The majority of census tracts in the city contain about 0-5% of residents who use public transit; however, upwards of 15% of residents rely on TARTA in several areas including the Old South End and Olde Towne.

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[Breakdown of Current TARTA ridership. Source: TARTA 2021 Report to the Community.]

Support Public Transit

Public transit relies on dense connected networks of jobs, services, and housing in order to operate feasibly and sustainably. An increased number of people living in a given area can greatly reduce the cost of public services.[^p66-2]

Data suggests 6-8 people per acre is the minimum density needed to run a public transit system, and around 10-12 people per acre is required to properly sustain one.[^p66-3] As of 2020, 44% of census tracts had a population density greater than 6 people per acre, as shown in the following map.

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[The darker shades indicate more people living in a census area relative to the size of the area. Source: U.S. Census.]

While comparisons between census periods can be difficult, the percentage of tracts with over 6 people per acre was closer to 55% in the 2000 census. This suggests that the city has lost pockets of density over the last 20 years, making it even more challenging to support and maintain a public transit system in Toledo.

In respect to passenger rail access, Amtrak has two passenger trains that pass through Toledo on a daily basis, the Capitol Limited route runs between Chicago and Washington, DC, with stops in Cleveland and

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[Areas with the highest percentage of public transit users. Source: U.S. Census.]

Support Public Transit

Pittsburgh. Additionally, the Lake Shore Limited route runs service from Chicago to New York City through Cleveland, Buffalo, and Albany.¹ Opportunities for increasing public transit and regional rail connectivity exist with additional funding being considered for the Cleveland-Toledo-Detroit Corridor which would provide new service on an existing railroad alignment.²

One way that the City can support public transit is by prioritizing key transit corridors (e.g. Monroe, Broadway, Summit, etc.) for housing developments. Increasing the number housing units can increase the number of people per acre, which strengthens overall ridership. Integrating a mix of commercial and residential developments into strategic areas of the City will help support nearby businesses with additional customers and improve mobility options for residents beyond automobile trips.

A thriving City requires mobility options for all residents. Toledo can benefit by focusing on land use regulations that support the use and improved efficiency of public transit. Elements of these improvements include a reduction in transportation costs, less land devoted to paving and parking, and an increased access to the City and its resources for residents and visitors alike.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Support Public Transit:

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Incorporate transit-oriented design guidelines into design regulations along major corridors (e.g., mixture of residential and commercial uses, sidewalks).

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work spaces) in each neighborhood to ensure better access to good and services.

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Update and/or remove minimum parking requirements.

» Expand mobility options that connect people to regional destinations (e.g., bicycling, rideshare, public transit).

» Identify a network of slower residential streets that could be repurposed to serve a range of transit options and increase overall connectivity throughout the City.

MOVE 3

Expand Right-of-Way Use

Understand how right-of-way design impacts travel choices and caters to all modes of transportation.

Public right-of-way (ROW) is the government controlled land that connects every property in the City. The majority of public ROW is managed and maintained by the City, with other portions being controlled by the State or Federal government. Typically, right-of-way is improved with roadways bordered by a sidewalk or public utilities.

How right-of-way is designed impacts the mode residents choose to travel, the speed at which they travel, the safety of each trip, and the way land adjacent to the ROW is valued and developed. In many U.S. cities, roadways are designed primarily for automobiles with little thought to creating safe, engaging spaces for other modes of travel.

As explored in Increase Connectivity, younger generations are moving to areas with more transportation options. They are also 9% less likely to drive than older generations.¹ Retaining and attracting this demographic is important to Toledo's long-term growth. In fact, 84% of Forward Toledo survey respondents believe the City should do more to retain and attract America's largest demographic.² The design of the ROW can play an important role in this effort.

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Aligning the objectives of multiple City departments on roadway projects is essential to ensuring right-of-way improvements reflect changing transportation preferences. This could include identifying corridors in the city that would benefit most from Complete Streets projects. Complete Streets, is a method of street planning and design which allows for the safe travel of all users (e.g., pedestrians, motorists, cyclists, transit riders, etc.).³

The City can build upon its adopted Complete Streets policy through the creation of a complete street handbook with guidelines for decision-makers and stakeholders. These guidelines could include prioritization of roadways built for different modes (e.g., walking, bicycling, public transit). A classification system could prioritize different corridors and create clear expectations for alternative modes of travel throughout the City.

Roadway design which aligns with Complete Streets goals can be implemented by allocating a percentage of Capital Improvement Project funding for the expansion of uses in right-of-way. For instance, routine roadway reconstruction could include the addition of protected bike lanes, high visibility crosswalks, bus-only lanes, and other common, relatively low-cost safety improvements for all users. Landscaping and other aesthetic enhancements should be considered as well to encourage more pedestrian trips along the ROW.

Expand Right of Way Use — MOVE 3

[An image of a street designed with and without Complete Streets policies. Source: Smart Growth America]

Safety interventions could greatly increase commuter options. A 2015 survey conducted by People for Bikes found 54% of Americans would ride a bike more frequently if they had less fear of vehicle collisions.¹ Painted bike lanes seen on streets like Bancroft Street and 17th Street are a great step and provide a space on the road for cyclists, but additional safety measures can be included for future projects to increase their use. Physical barriers between vehicles and cyclists (e.g., the cycle track down Jefferson Avenue), have been shown to increase rider safety and interest in cycling.² Additional installations like these would lead to a greater variety of options for Toledo residents and an increase in ROW use.

Expanding right-of-way use is more comprehensive than just bicycle infrastructure. The reconstruction of State Street in West Lafeyette, Indiana exemplifies the potential amenities that can be offered in a city’s ROW. The reconstruction, undertaken in 2018, included widening the sidewalks, reducing traffic lanes and lane-width, dedicated cycling lanes, improving street lighting, enhancing landscaping, upgrading transit stops, and placemaking through public art and gateway signage. Funded primarily through a TIF (Tax Increment Financing) program, the project is estimated to have contributed more than $500 million in local investment.³

Expand Right of Way Use | MOVE 3

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[The Jefferson Cycle Track (above) provides physical barriers between cyclists and motorists. Source: Plan Commission]

Due to the varying width and conditions of existing ROW, there is no one-size-fits-all solution to expanding transportation modes in Toledo. Knowing this limitation, not every project can be as extensive and comprehensive as the Jefferson Cycle Track or State Street examples.

Parcel-by-parcel redevelopment provides an alternative path to expanding right-of-way use for cohesive infrastructure projects. By amending the zoning code to allow the City to request additional land as part of development projects, Toledo can incentivize and support small public space ROW improvements.

These improvements could range from minor traffic calming measures to improved spaces for bus stops.

Over time these changes create larger impacts on safety and placemaking. Incorporating additional streetscape design elements into new developments, such as street trees and landscaping, green stormwater projects, and low-cost temporary spaces (e.g. patios and parklets), can also indirectly enhance the public right-of-way, and improve public-private spaces.

The concept of “Open Streets” presents another opportunity to expand right-of-way use. Open Streets, and the Open Street Plans which guide them, involve shutting down public ROW to all motor vehicle traffic, and provides increased pedestrian, bicycle, and multi-modal amenities.

As discussed in Encourage Social Opportunities, open streets create new gathering places for residents, visitors, and other community members. Notably, businesses have been shown to benefit from the increased foot traffic and street activation caused by Open Street programs.¹

Collaboration with city agencies and private business can improve the public right-of-way and result in more options and better spaces for Toledoans. These public space enhancements can improve many things from public health (see Reduce Pollution), to social well-being (see Walkable Neighborhoods), to improved youth development outcomes (see Support Childhood Development), or by creating interesting places that people want to be (see Creating Unique Places).

Expand Right of Way Use

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[Before and after enhancement on State Street in West Lafayette, Indiana. Lane reduction, mixed-use paths, improved landscaping, and improved pedestrian crossings all contribute to a more versatile ROW. Source: Google Street View]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Expand Right-of-Way Use:

» Collaborate with multiple City departments on transportation related projects to generate more non-automobile activity along roadways.

» Amend the Zoning Code to allow the City to request additional land (e.g., Right-of-Way) as part of a development project.

» Encourage the integration of dedicated pedestrian infrastructure in roadway projects.

» Identify corridors in the City that would best benefit from road diets and complete street improvements (e.g., fewer automobile lanes, safe space for walking, dedicated bike lanes).

» Allocate a percentage of Capital Improvement Project (CIP) funding, an important City infrastructure fund, for use in projects that incorporate all modes of travel (i.e., Complete Streets).

» Incorporate additional design elements that connect people to places such as landscaping, green stormwater projects, or temporary low-cost changes (e.g., parklets or patio space) that improve public space.

MOVE 4

Logistics Hub

Highlight Toledo’s historic success and ongoing potential as a freight and logistics hub due to its strategic location and workforce.

Access to national transportation networks is foundational to Toledo’s economic success. The Maumee River, Lake Erie, a crossroads of major interstates, and a strong rail network all make up the City and region’s robust freight network. Not only does Toledo provide access to nearby domestic trade markets such as Detroit, Cleveland, Chicago, and Columbus, but it also serves an international market through existing and planned border crossings into Canada. The border crossing at Detroit’s Ambassador Bridge accounts for a 1/4¹ of all trade between the US and Canada (see Expand Manufacturing).

These logistic connections help to fuel economic growth in Toledo. As shown in the chart below, over 19% of the population is employed in either Logistics or Production occupations in 2017 (see following page). These jobs often offer entry level opportunities with better compensation and career growth compared to other occupations (see Workforce Opportunities). A goal of the Forward Toledo plan is to support and expand Toledo’s role as a Logistics Hub for the modern economy.

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[Lake Erie, two major interstates, and four rail lines all intersect in Toledo. Source: Train data TMACOG.]

Logistics Hub

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As discussed in the goal Expand Areas for Manufacturing, one barrier to Toledo’s growth as an industrial hub is the availability of land. As existing industrial users outgrow their locations, they can have difficulty finding a site which meets their needs in Toledo. The City can offset this limitation through the completion of an industrial land use study that takes into account access to transportation and freight networks, and utilities. Another key element of this land use study is understanding market changes (e.g., brick & mortar vs. e-commerce see Improved Decision-Making). By understanding how to “right size” our land use (e.g., adequate supply of industrial and commercial land to meet contemporary demand) the City can inventory potential sites for future industrial development.

The need to be strategic with how land is used is vital for Toledo’s long-term success, as vacant development can become an obstacle for reuse. Two formerly long-vacant shopping centers are emblematic of shifts in local and regional land use demands: Southwyck and NorthTowne. Both sites have been successfully redeveloped into industrial job centers with the help of city resources. One is an Amazon Distribution Center, which demonstrates the shift from traditional retail to e-commerce, and the other is the Toledo Trade Center, marketed to manufacturing and logistic tenants.

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[Employment data for the region. Logistics and production jobs account for 19% of regional employment. Source: 2018 Toledo Talent Alignment Strategy]

Logistics Hub MOVE 4

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Logistics also has the potential to support the rejuvenation of existing manufacturing corridors. These areas can be supported with low-impact, high-technology uses that also provide local jobs for residents. An example of successful industrial redevelopment is the Overland Industrial Park at the site of the former Willys Overland Jeep factory, which provides economic opportunity to nearby residents while minimizing its impacts on the surrounding community.

The improvements undertaken by industrial developments do not come without a cost to the community. Heavy trucks and oversize load vehicles have a greater impact on the structural integrity of roadways.¹ To counteract this, the City can explore the use of impact fees so that roadway repair costs do not fall on the shoulders of Toledo residents. Major metropolitans, such as New York City, have implemented Commercial Motor Vehicle Taxes which charge an annual fee for the use of certain sized vehicles within the city.²

While passenger services have fluctuated in recent years at the Eugene F. Kranz Toledo Express, airline freight service has seen growth in the region. The Amazon Air Toledo Gateway began flight operations in 2021, with Toledo Express Airport experiencing the largest growth in landed freight in the country that calendar year.³ Additional support for industrial areas catering to the

Logistics Hub

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[Mural of historical signage from the early 1900s reflects Toledo’s business-friendly environment, past and present. Source: Lucas County Land Bank.]

freight and logistics industry could further enhance the services at Toledo Express Airport.

Toledo’s existing industrial assets can be built upon for continued success within these evolving industries. By focusing on land uses related to the production, manufacturing, and transportation fields, Toledo can welcome economic opportunity without negatively impacting existing neighborhoods.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to support growth as a Logistics Hub:

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Identify and support a business corridor with emphasis on green energy and logistics.

» Allow smaller scale industrial uses in a wider variety of areas (e.g., neighborhood business districts or shopping centers) that have minimal impacts on neighborhoods.

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Consider the use of impact fees for major business and logistics users to ensure the local roadways they impact are maintained in good condition.

» Explore ways to expedite minor site plan reviews for industrial developments.

MOVE 5

Walkable Neighborhoods

Encourage more goods and services within walking distance, independence among residents, and sustainable uses of land.

Toledo, like most U.S. cities, is not designed in a way that allows people to easily access daily needs without a vehicle. The “15-minute neighborhood” concept has been gaining momentum in many cities across the United States. The idea is to make daily necessities available within a 15-minute walk, allowing people to live more independently (e.g., elderly or disabled), reducing commuting times, and reliance on automobiles. Walkable neighborhoods also reduce the amount of land for paving/parking (a low-value use), enhancing the overall environmental quality of a city.

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[An image of travel times based on mode of travel. Source: Congress for New Urbanism.]

The graphic below represents the time and distance traveled by walking or biking from a single point of origin. The average time it takes for a person to walk one-quarter mile is 5-minutes. Whereas, the average time it takes a bicycle to go 1 mile is 5-minutes.¹ This metric becomes important when determining walkable areas in the city as residents are more like to complete shorter trips without the use of an automobile.

Since the 1950’s the focus of regulating developments has predominantly been by the separation of function: residential from commercial. This has resulted in a strong bias towards travel by automobile with minimal or no consideration given to walkability, especially for daily errands, and little to no consideration on the burden for those without automobile access.

These suburban growth trends, combined with traditional zoning and land use laws, have created an imbalance in the cost/value of land. This has contributed to a nationwide housing shortage, especially when parking requirements and parking expectations are included. Additional walkable areas in the city would reduce the need for large parking areas and free up more land for higher value uses like housing.

Walkable Neighborhoods

It is unrealistic to expect that every neighborhood in Toledo will be walkable in the near future, but there are areas that can serve as a starting point. Below is a map showing the most likely areas for Walkable Oriented Development (WOD) (in blue) within the City of Toledo:

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[Walkable oriented areas based on existing businesses. Data from AEI Housing Center 2021.]

A WOD is within a 10-minute walk of a cluster of 6 or more points of interest. Each cluster consists of at least six restaurants/bars, coffee shops, supermarkets/grocery stores, hardware stores, and/or pharmacies/drugstores. These areas are projected so that each property within a WOD is within a 10-minute walk of a cluster.¹

Examples of existing WOD areas in the city outside of Downtown include Five Points and the Sylvania Avenue Corridor, Old South End, Main Street, and Point Place, but there are other areas identified in the map that could be developed and supported.

There is also a strategic opportunity to address housing within WODs. Increasing the residential density in such areas, even from 1- to 2-unit structures, would result in a much-needed addition to the housing supply, improve the vibrancy of existing commercial areas which may be underutilized, increase the potential customer base for businesses, and provide an increase in property tax revenue.

The development of these areas may bring potential congestion related impacts. This can be offset to a degree by the walkability of the area, which reduces reliance on motor vehicles and provides alternative modes of transit, both of which are goals of this plan.

By embracing and supporting development in and around walkable oriented developments, the City can increase the viability of pedestrian movement in more neighborhoods.

Walkable Neighborhoods

"To me, this is the key area to transform our city into a safer, healthier, more efficient, and more attractive place to live. In short, it all boils down to prioritizing people over cars. We have so much work to do to correct the car obsessed approach of the last 75 years, but this seems like an area where we can make simple and affordable changes quickly to start building momentum."

-Daniel W.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to create more Walkable Neighborhoods:

» Reduce reliance on cars by establishing priority areas in the City that support walking for local trips.

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Prioritize pedestrian design elements (e.g. street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g. slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Promote the importance of greenspace in neighborhoods and expand availability (e.g., impact on mental health, crime reductions, and overall well-being).

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

» Support a streamlined development review process to install and improve crosswalks and pedestrian infrastructure.

» Update and/or remove minimum parking requirements.

» Demonstrate the potential of Comprehensive Plan ideas through pilot projects (i.e., tactical urbanism) before committing to larger citywide changes.

MOVE 6

Accessibility Opportunities

Explore how development and public infrastructure (e.g., sidewalks) can contribute to a more inclusive community.

From public roads to private drives and sidewalks, the way individuals move through the built environment dictates their access to goods, services, employment, and social life. An accessible home, place of work, or school, is of little use if you cannot get where you need to go. Limited transportation networks that do not consider the needs of all users, especially those requiring a greater level of access, fail to adequately serve the entire City.

The establishment of the Mayor’s Office on Disability greatly assists in Forward Toledo’s vision of a more accessible City. The majority of progress towards improved accessibility will occur outside of land use planning, but there are ways to help address it through new development.

The Americans with Disabilities Act (ADA), as well as other building code requirements, dictate accessibility in building design. However, these regulations often result in disconnected and piecemeal outcomes beyond the building design. Toledo can take a proactive approach to expanding accessibility in the built environment by advocating for and adopting additional standards to promote mobility for all residents. These standards would not only impact the internal accessibility of destinations, but how people maneuver between properties.

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Panel is raised by tree. Panel is sunken/lifted by 1/2". Panel is missing pieces.

[Maintaining the backbone of the City’s public infrastructure, sidewalks, is key to maintaining accessibility. Source: City of Toledo Engineering.]

Accessibility Opportunities

Universal Design Standards, as explored in Inclusive Communities, are one such set of standards widely adopted across many communities. By encouraging accessibility in all elements of design, from individual details to the relationship between private and public spaces, Universal Design Standards create a set of guidelines which ensure improved access for all. Incorporating these standards into new development and redevelopment would allow all residents to access a greater number of amenities throughout the City, regardless of age, identity, ability or disability.

New development is often the best opportunity to implement accessibility strategies. Toledo can further support accessibility opportunities by expanding the role of accessibility in reviewing new development plans. This accessibility-focused lens could implement interventions not just on private developments, but along adjacent right-of-way, and better connect developments to existing sidewalks, trails, paths, etc. The City can create more equitable outcomes beyond private property boundaries by keeping a diverse array of end-users in mind while reviewing projects and planning future infrastructure improvements (e.g.; seniors, individuals with disabilities, and children).

Expanding Right-of-Way Use leads to a more accessible community. Reducing dependency on automobiles, while emphasizing alternative transportation methods such as public transit, requires multiple elements for success. For example, an accessible bus needs a clear path to access the bus stop.¹ Existing public transit systems which already provide specialized mobility options, such as TARPs (Toledo Area Regional Paratransit System) for those with disabilities, can also be improved through

interventions like street crossings, sidewalks, or tactile paving. Creating accessible multi-modal travel networks ensures no portion of the journey is a barrier to access for Toledoans.

Where and how certain land-uses locate within the City also impacts accessibility. Distributing important resources (e.g., health care, job centers, and grocery stores) evenly throughout the city increases access for individuals with limited options. Underutilized shopping centers with large, vacant parking lots are spaces that could be transformed in Toledo to provide resources, housing, and amenities in reach of more residents as shown below.

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[Aerial image of Manhattan Plaza. Source: City of Toledo.]

Accessibility Opportunities

Strategically targeting larger underutilized shopping centers and similar sites for Transit-Oriented-Development (TOD) would create compact, mixed-use areas that can provide transit and accessibility opportunities. TOD encourages the construction of denser commercial and residential uses, creating smaller spaces that support public transit and bring residents closer to basic goods and services, including people with disabilities. TODs have also been shown to increase property values and accessibility of surrounding properties.¹

Reutilization of commercial land for TOD has proven successful in other cities. In Massachusetts, for example, the town of Woburn successfully converted a mostly-vacant shopping center into “Woburn Village.” Woburn Village includes 350 units (25% of which are reserved for lower-earning families), and it preserved existing occupied retail businesses. The development of Woburn Village was planned according to many of the urban design principles that this plan supports, leading to a walkable grid and close proximity to regional transit, reducing residents’ reliance on cars for mobility (see images to the right).²

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[2017 aerial image of Woburn Village from Google Earth (top), “Bird’s eye view of development” by Amenta / Emma Architects, PC (bottom).]

Accessibility Opportunities

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[Source: Metroparks]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to improve Accessibility Opportunities:

» Complete a review of land use policies to ensure that accessibility is adequately addressed with development (e.g., Universal Design Standards).

» Advocate for the adoption and implementation of additional standards that promote mobility for all residents (e.g., Universal Design Standards).

» Expand the role of accessibility in the review of new projects to support underrepresented populations (e.g., seniors, individuals with disabilities).

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Identify specific areas throughout the City that best support walkable neighborhoods (e.g., more people living in an area).

» Increase the availability and safety of sidewalks throughout the City.

» Review drive-thru regulations to address traffic issues in certain areas (e.g., restaurants along major roadways).

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Prioritize more Capital Improvement Funding for park or pedestrian uses (e.g., consider a % of overall CIP budget).

[Source: Arts Commission - Natalie Tranelli-Jacobs]

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PLACE >>>

Strategies for placemaking, expanding opportunity, and building inclusive communities.

PLACE 1

Attractive Place to Live

Promote local attractions and historic success to encourage population growth in the future.

“We continue to live in Toledo as opposed to moving to a suburb because of how walkable the neighborhood is and how close we are to amenities like coffee shops, bake shops, restaurants, etc.”

-Resident, 43606 Forward Toledo Survey Response

One of Toledo’s greatest appeals is affordability. Toledo is frequently listed as a top destination for buying an affordable home.¹ This is especially true for younger demographics. Toledo ranked 20th out of the top 100 metro areas on affordability for younger households.² This is increasing in significance as housing prices nationwide reach record highs.³ Toledo was also identified as a top affordable location to retire and to vacation for families.⁴ Maintaining this advantage through policies that preserve and promote housing will be critical for the future success of the city.

Toledo is located along the Great Lakes, one of the largest bodies of fresh water in the world and a top U.S. destination for fishing (see Water Belt and Promote Recreational Opportunities). Toledo is not usually associated with water given the relatively small amount of the city adjacent to Lake Erie, but there is enormous potential to emphasize Toledo’s location on the water given that Toledo is the 6th largest city on the Great Lakes.

The significance of water goes beyond recreation. It is vital for everyday life, and is becoming an increasingly scarce resource for a number of U.S. communities, leading to drought conditions. Using our land wisely and developing in sustainable ways will help to ensure that this unique resource is protected for years to come.

Toledo is not without its challenges. The city’s population peaked in 1969 at 383,105 and has declined steadily ever since.⁵ Part of this loss was due to the lack of available land and the demolition of older housing stock on smaller lots. This led to a loss of 14,000 residential units over the past thirty-five years without adequate replacements (see Promote Housing Variety).

Changing demographic preferences are also impacting the future. In 2019, millennials (born 1981 to 1996) surpassed baby boomers (born 1946-1964) to become the largest population group in the U.S.⁶ Millennials have different

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[Source: Lucas County Land Bank]

Attractive Place to Live

lifestyle preferences than older cohorts and are moving to places where those values are on display.¹ Toledo has a high percentage of youth relative to the overall population in the U.S., but one of the lowest growth rates.² If Toledo plans to stabilize and grow its population, it is going to need to adapt to retain and attract America’s largest demographic.

One place to start appealing to younger demographics is through the region’s natural resources. Prioritizing land uses that draw more people to our water resources is a great first step that we have already begun to embrace regionally.

In 2020, voters overwhelmingly approved additional funding for a new waterfront facing park and riverwalk. The first two phases of the Glass City Metropark are complete and activate over 67 acres of land along the Maumee River. The Glass City Riverwalk, currently under construction, will create more than five miles of trails along both sides of the Maumee River connecting neighborhoods and local businesses together in a unique way. Both of these uses have the potential to become a regional destination for residents and visitors. Revisiting older plans to create a trail along Swan Creek near the Warehouse District should also be considered given the potential connection to the Glass City Riverwalk and additional City infrastructure.

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Attractive Place to Live

PLACE 1

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[Picture from survey asking participants to choose between two streetscapes: the older, pedestrian friendly, with distinct character (site A) and the cleaner, modern development with parking and landscaping (site B). Source: Google Street View]

Neighborhood character is also an important distinguishing attraction for Toledo. Many of the City’s neighborhoods possess unique features or elements that are not easily replicated in modern, suburban-style developments. Toledoans overwhelmingly agree with this sentiment and support Traditional Neighborhood Development (TND) such as grid-pattern streets, sidewalks, mixed uses, and higher density.

In the Forward Toledo Survey, participants were asked to choose a preference between two streetscapes in Toledo (see above site A & site B). 72% of respondents said they would prefer site A and referenced the character of the building, the architecture, and historical value as the major reasons. Additionally, creating unique neighborhoods was the second most selected strategy by public participants at the community workshops.

The unique characteristics of older cities are worth preserving. One way to do this is to incorporate the existing neighborhood identity in future planning projects which starts with an inventory of neighborhood characteristics. This, along with neighborhood involvement and input, will ensure the characteristics are maintained as development occurs.

The Forward Toledo Plan includes a number of examples of the positive changes occurring in Toledo, many of which go beyond land use decisions and planning policy. One of the simplest ways to further promote Toledo as an attractive place to live is by celebrating and promoting the things that the City is already doing well.

84 FORWARD TOLEDO GOALS

Attractive Place to Live

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[Murals in Toledo’s Old South End neighborhood. Source: Lucas County Land Bank]

Supporting Other Themes:

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1 a. Realtor.com. December 4, 2023. Top Housing Markets for 2024. Available here. b. Zillow. October 25, 2020. The Top 10 Most Affordable Metros for Buying a Home. Available here. 2 National Association of Realtors. 2020. Most Favorable Areas for Millennials During the Pandemic. Available here. 3 The White House. September 9, 2021. Housing Prices and Inflation. Available here. 4 a. Forbes. July 28, 2022. The Best and Most Affordable Places to Live in America. Available here. b. Go Banking Rates. June 3, 2023. 50 Cheapest Places to Retire Across America. Available here. 5 Forbes. May 8, 2023. Most Affordable Cities for Family Vacations. Available here. 6 City of Toledo. July 2016. Consolidated Plan FY 2010-2015: Community Profile. Available here. 7 Pew Research Center. April 28, 2020. Millennials overtake Baby Boomers as America’s largest generation. Available here. 8 a. Pew Research center. February 14, 2019. Millennial life: How young adulthood today compares with prior generations. Available here. b. Eventbrite. 2014. Millennials – Fueling the Experience Economy. 9 Brookings Institute. Metropolitan Policy Program. The Millennial Generation: A demographic bridge to America’s diverse future. 2018. Available here and here.

Strategies:

The City will seek to accomplish the following action steps to promote an Attractive Place to Live:

» Maintain Toledo’s housing affordability (e.g., housing variety).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Shift the regional identity by supporting policies that strengthen the importance of water quality and the environment (e.g., Water Belt).

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

» Acknowledge Toledo as a sustainable City that will be less affected by extreme weather due to geographical location (e.g., drought in Western states).

PLACE 2

Strengthen Neighborhoods

Strengthen the connection between residents and neighborhood businesses.

Healthy, thriving neighborhoods are the backbone of a prosperous city. Toledo, like many larger Midwest cities, has its challenges when it comes to many of the elements that make neighborhoods strong, such as housing, population growth, or a robust transportation system. The loss of people, housing, and lack of new builds over the last 35 years has been a substantial obstacle for the stability of many neighborhoods and leads to fewer homeowners with long-term commitments in the area (see Support Housing Variety). This not only impacts population growth, but also the ability to meet resident’s material needs and provide a variety of transportation options.

One component of strong neighborhoods is businesses that provide basic goods and services to residents. However, businesses need a large enough customer base to support their stores. A common need articulated in many Toledo neighborhoods is the availability of a grocery store with fresh produce. This is a very difficult business to sustain, especially without the necessary customer base, as perishable food items have very low profit margins.

As discussed in Healthy Food Access, a 50,000 sq. ft. grocery store needs a customer base of 8,000 - 10,000 people. One of the most impactful ways that this plan can contribute to stronger neighborhoods is through policies that encourage more housing units, especially in older neighborhoods with substantial demolitions. The loss of residents in many neighborhoods coincides with the loss of housing. An increase in housing helps to generate the population base required to support local neighborhood businesses.

A challenge in many neighborhoods is the depressed housing value and absence of larger parcels of land for development. Residential demolitions are scattered and fragmented throughout the city which leaves behind small vacant lots that are often isolated. This limits the consolidation and acquisition of sizable amounts of land for redevelopment.

“[We want] bakeries, meat markets, coffee shops...places we can walk to.”

-Deborah Z.

Strengthen Neighborhoods | PLACE 2

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Another factor is changing market conditions. Due to the increase of online shopping compared to brick-and-mortar stores, less land than ever before is needed for commercial uses (see Improved Decision-Making). This leads to a larger question of what should be done with underutilized commercial space in the City.

An important first step is to complete a detailed analysis of commercial land uses in order to understand the future needs of residents and businesses. The analysis would include available commercial space, building age and condition, population growth, and potential market demand. This is important because new commercial spaces can shift demand from existing buildings, resulting in empty, vacant storefronts (see Improved Decision-Making).

Vacant commercial areas are a prime candidate to transform automobile-focused commercial development into mixed-use areas with businesses and housing. More businesses and people in a neighborhood increase the potential of walking for daily trips and the viability of public transit.¹

Additional transportation options help residents maintain their independence and stay within the neighborhood, regardless of ability or access to an automobile. Redevelopment of commercial areas is also an opportunity to explore design guidelines for compact, mixed-use development that encourages a range of activity. The same mixture of uses may not be appropriate in every neighborhood, so it is important to understand each neighborhood individually.

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Strengthen Neighborhoods

“I would like to see music venues, studios (poetry, dance, art, music), tech spaces, community centers, affordable office spaces for start ups and local business owners, small grocery stores, and healthy eatery options.”

-Abby S.

There are a number of other factors which contribute to strong neighborhoods not discussed here. Many Forward Toledo survey respondents mentioned crime and safety as a top concern. This is certainly an important issue, but one that is difficult to address directly through a land use plan. However, strong and safe neighborhoods incorporate planning elements such as diverse housing, good design, and pedestrian activity. These elements are important details that support other community goals such as improving pedestrian safety, increasing opportunities for social connections, or potentially reducing crime with additional people or activity on the

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Strengthen Neighborhoods:

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Reduce vacant storefronts by completing a commercial land use analysis with actionable strategies based on individual neighborhood needs.

» Explore efforts to open independent grocery stores and prioritize in areas where vehicle ownership is low.

» Review and modify regulations to incentivize grocery stores with fresh food over other types of stores (e.g., reduced parking requirements, loading zones, permitted locations).

» Review neighborhood quality metrics (e.g., crime, income, population change) on a yearly basis to track the effectiveness of planning strategies.

Addressing Housing Affordability

Encourage the development of housing at price points achievable for all residents.

Strong Growth in High-Cost Rentals Has Coincided with Dramatic Declines in Low-Cost Units

Rental Units (Millions)

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Real Monthly Contract Rent — Under $600 — $600–999 — $1,000 and Over

Notes: Rental units may be occupied, vacant for rent, or rented but unoccupied; excludes units occupied without cash rent. Dollar values are adjusted for inflation using the CPI-U for All Items Less Shelter. Contract rent excludes all utilities paid separately. Source: JCHS tabulations of US Census Bureau, American Community Survey 1-Year Estimates via IPUMS USA.

While Down Across in All Segments, Vacancy Rates for Moderate- and Lower-Quality Rentals Are Especially Low

Rental Vacany Rate (Percent)

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All Apartments — 1 & 2 Star (Lower Quality) — 3 Star (ModerateQuality) — 4 & 5 Star (High Quality)

Notes: Apartment quality is based on the CoStar Building Rating System for market-rate apartments in buildings with five or more units. Vacancy rates are four-quarter trailing averages. Source: JCHS tabulations of CoStar data.

Housing affordability has been a pressing issue in recent years both locally and nationally. In 2021, reports suggested the U.S. needed an additional 3.8 million single-family homes to meet demand. Equally concerning was the fact that larger, more expensive homes are making up a greater percentage of new construction. Nationwide, builders only started 65,000 entry-level homes smaller than 1,400 sq. ft. in 2020, compared to 400,000 in 2000.¹

The lack of affordability is noticeable with rentals as well. Between 2012 and 2017, the number of units renting for $1,000 or more increased by 5 million, while rentals in the $600-999 range declined by 450,000. Demand for lower cost rentals also remained elevated compared to higher cost units.²

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[Recent housing cost rental trends. Source: Joint Center for Housing Studies of Harvard University, 2020]

Address Housing Affordability

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Insufficient supply, along with other factors, has contributed to housing costs reaching historic levels. Nationally, the cost of a new single-family home exceeds $400,000 and in Lucas County the cost is closer to $300,000.¹,² These price points greatly exceed the costs of housing in most Toledo neighborhoods where the U.S. census estimate for median value home was $118,300 with a mortgage and $81,200 without.³

[National single family housing cost data. Source: National Association of Home Builders 3/25/24]

The price difference between new and existing homes in many Toledo neighborhoods creates unique challenges for new construction (e.g. depreciation). This plan also explores ways to incentivize the construction of new housing units through the goal Promote Housing Variety.

A standard measurement for housing costs is the cost per square foot. In April 2023, the national average was $190 per square foot.⁴ However, those costs will vary noticeably depending on the location, even within the same market.

Creating opportunities for additional units on a property is one strategy to implement the goal of housing affordability. Providing additional units lowers the cost of the overall development and makes it more competitive on a per unit basis for a developer to construct.

A report by the Brookings Institute found that in Washington D.C., six townhomes could be built at nearly 60 percent of the cost compared to three townhomes or one single-family unit.⁵ This is largely due to shared construction costs and smaller unit sizes. The additional units also increase supply which over time helps to moderate housing prices.

Address Housing Affordability

Homeownership has been shown to build wealth and equity, enhance generational stability, and provide a lower cost of living over time.¹ Policies that incentivize and enable home ownership should be prioritized in order to reverse growing trends of corporate property ownership in the housing market. The number of corporate-owned residential parcels in Toledo has tripled in the past seventeen years, as can be seen in the maps below.

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[Staff Analysis of LLC ownership of residential property over time. Source: AREIS 2006, 2022]

While corporate ownership may stabilize an existing housing unit, it takes a home out of the pool for a homebuyer and further increases housing costs. Additionally, rent paid to a corporate landlord not based in Toledo represents an outflow of capital for the City. Incentives could include smaller lot sizes or structures for cluster housing developments or vertical townhomes, using Ohio condominium laws to create home ownership while sharing the underlying land to create opportunities for pathways to ownership.

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Address Housing Affordability

Homeownership is not necessarily the right fit for every resident's current situation. Strategies such as encouraging mixed-use commercial areas (e.g. first-floor retail with loft apartments above) help support the construction of affordable rental options in close proximity to jobs, goods, and services. The preservation of existing structures also provides a significant value to the community compared to demolition or new construction (see Building Preservation).

As stated in Promote Housing Variety, Toledo has experienced a substantial loss of housing units with very few replacements. When it comes to affordability it is clear that what has been done in the past isn't working for Toledo or the nation. Growing as a community and providing stability for existing residents will require bold, new ideas to encourage the construction of additional housing units.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Address Housing Affordability:

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Identify and remove or reduce regulatory barriers with developing non-traditional housing.

» Partner with homebuilders to better understand their issues or barriers with development.

» Expand dollars that prioritize the preservation of existing housing.

» Revise property lot size requirements to accommodate a wider variety of development projects.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Engage neighborhoods in workshops that are focused on explaining concepts from the plan (e.g., missing middle housing topic).

» Take steps to address the increase in corporate-owned residential units (e.g., focused enforcement of rental regulations.

» Support the development of Community Land Trusts as a pathway to affordable home ownership.

PLACE 4

Business Creation

Encourage the creation of new, neighborhood-scale businesses through economic development policies and decisions on how land is used.

Businesses form an important part of a city and its neighborhoods. Forward Toledo survey respondents and workshop participants reinforced this fact by rating business creation as a top priority for the Plan’s goals. While this is supportive, encouraging new business is an indirect outcome of planning which is largely focused on how land is used and buildings are designed. Planning ensures that neighborhoods have adequate space for new businesses, suitable locations for them to be successful, and encourages buildings that are well-designed and compatible with adjacent developments.

“We need to see more local businesses in downtown, especially woman-owned.”

-Rachel M.

One way the City can support new business development is by completing a commercial land use analysis to better understand the needs in each neighborhood. As explored in Improved Decision-Making and Strengthen Neighborhoods, new commercial spaces will generally take demand from existing spaces in areas with population or wage growth. The one exception is a regional attraction that pulls demand from other communities and markets (e.g. a large specialty store like IKEA).

Understanding demand and guiding the growth or maintenance of commercial spaces is important because vacant storefronts can easily become an eyesore in a community and detract from future investment. This can impact adjacent businesses who have to deal with the negative perceptions of the neighborhood, as well as reduce the tax base available to the City, resulting in a loss of amenities for a neighborhood. Without demand there is also less of an incentive to fix up an older commercial space, which intensifies longer-term problems for a community.

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[Mancy’s Steakhouse. Source: Lucas County Land Bank]

Business Creation

Vacant buildings can pose problems to neighborhoods for other reasons. Many older areas in the City have corner stores that served the neighborhood well at one time but were unable to adapt to changing market conditions and now sit empty. There are an estimated 400 structures like this in the City.¹

These structures often lack the parking space needed and expected of modern commercial developments.

Most have residential zoning designation which makes commercial reuse of the buildings difficult. There is usually a hesitancy to: 1) support rezoning of these spaces due to the range of land uses that are allowed in commercial zoning districts and 2) pursue rezoning these sites due to the uncertainty in the review process. Exploring innovative ways to activate those spaces would be significant in supporting business creation in the city.

Legacy Commercial

Properties zoned residentially, but historically used for commercial purposes.

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[Example of sites in Toledo that are zoned residentially but used commercially. Source: Toledo Lucas County Plan Commissions.]

Business Creation

PLACE 4

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[Source: Lucas County Land Bank]

One sector that has seen increased demand in our region is the industrial economy. This has historically been and continues to be one of the economic strengths of the region. The lack of available land within Toledo means that much of the industrial growth has been outside city limits. Older industrial sites within the City remain vacant due to size constraints, location to interstate/ highway access, or the need for brownfield remediation. A 2022 preliminary analysis of vacant industrial land indicated there are few opportunities for new industrial development when roadway access and floodplain proximity are considered.

Given the changes to consumer habits and purchasing preferences from in-person buying to online markets, it is likely that cities will need less physical commercial space in the future (see Improved Decision-Making). This becomes an opportunity to identify sites that could be repurposed for industrial uses and encourage new industrial business creation.

Shifting business demand is also a chance to review zoning regulations for industrial land uses, especially those with limited neighborhood impacts (e.g. noise or traffic). Allowing low impact industrial uses in more locations reduces time and uncertainty with project approval. These small policy changes could be the difference between an existing business expanding or a new business deciding to locate within the City.

Industrial developments could be strengthened further by identifying and supporting a green energy and logistics corridor in the region. The goal would be to develop the infrastructure, land, and policies that could attract businesses from these growing sectors, while playing to strengths in the region. This could be similar to the whitebox initiatives provided by the City’s Division of Economic Development for projects like the Toledo Trade Center at the North Towne Mall or the redevelopment of Overland Industrial Park. There are also opportunities to incorporate smart City initiatives that integrate technology to help manage traffic or improve energy efficiency of public utilities while making the area accessible for multiple modes of travel.

COMPREHENSIVE LAND USE PLAN 95

Business Creation

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[Coney Island Hot Dog Downtown Toledo. Source: City of Toledo]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps for Business Creation:

» Develop guides that helps new businesses navigate local planning regulations.

» Reduce vacant storefronts by completing a land use analysis with actionable strategies based on individual neighborhood needs.

» Reuse vacant buildings for shared work space for local entrepreneurs and artists.

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Identify and support a business corridor with emphasis on green energy and logistics.

» Allow smaller-scale industrial uses in a wider variety of areas (e.g., neighborhood business districts or shopping centers) that have minimal impacts on neighborhoods.

1 The Toledo Lucas County Plan Commissions completed an analysis using Lucas County AREIS data for current use and official zoning designations for property.

PLACE 5

Funding Big Ideas

Explore the importance of implementing Plan ideas with an emphasis on funding mechanisms and strategies that other communities used, along with projects the City could pursue.

Two things are necessary for the Forward Toledo Plan to be successful: implementation and financing. The Capital Improvement Program (CIP) is one of the most common ways that goals in a comprehensive land use plan get implemented. The CIP is used to coordinate the location, timing, and financing of city improvements over longer periods. It is funded by a 3/4% allocation from Toledo's income tax.

This funding source, along with many city budgets across the U.S., was severely impacted after the 2008 financial crisis. Facing a deficit in 2009, Toledo voters supported the transfer of money from the CIP to the general fund to avoid raising additional taxes during an already difficult time. Each year since then money has been transferred from the CIP to the general fund. This, however, did not come without consequences.

One of the largest impacts to the CIP was to new projects, which dropped dramatically after 2009. Funding for new projects went from $20M in 2001 and 2006 to less than $1M by 2016. These types of new projects were generally related to public buildings, parks, infrastructure, or supporting private developments. Specific CIP funding for roadway

projects were approved in 2021 with a temporary, 10-year, 1/4% income tax increase. This change, along with Toledo's financial recovery from the 2008 recession, helped to restore CIP funding for additional large projects in 2021. In recent years (e.g. 2020), the CIP transfer has been returned due to favorable revenue activity in other accounts (e.g., income tax).

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[Toledo CIP Uses between 2001 and 2021 - 5 year increments. Data is from initial budget prior to any mid-year adjustments. Source: City of Toledo.]

Funding Big Ideas

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[Examples of projects funded by Oklahoma City’s sales tax program, MAPS. Source: Oklahoma City]

When Toledo was contemplating the budget transfer in 2009, other communities were choosing to invest in their future. Cities like Columbus, Ohio approved a 1/2% income tax increase. Over this same time period Columbus experienced population growth while Toledo declined. It is difficult to make a direct correlation between these two points, but it does illustrate a difference in priorities and outcomes between a community that maintains and one that invests.

Income tax is not the only approach to securing funding for large capital projects. Oklahoma City approved a temporary, 5-year, 1% sales tax to fund its Metropolitan Area Projects program. This tax funded larger capital improvement projects such as their riverfront, public transit, and recreational facilities. The program was incredibly successful and has resulted in three additional follow-up programs.¹

Indianapolis funded the Indianapolis Cultural Trail, a shared multi-use path for bicyclists and pedestrians through their downtown, primarily by using federal transportation dollars and fundraising. The fundraising created a compelling vision for public support and was anchored by larger philanthropic donations. The trail was completed in multiple phases as funding became available. Additional details and benefits of the trail are discussed in Highlight Regional Tourism.

Successful, thriving communities are ones that invest in themselves. The decisions made in 2009 had lasting impacts on our ability to grow as a community. Recent collective decisions like the approval of funding for the Glass City Riverwalk is starting to change that narrative. It also serves as an important catalyst for projects that help shift our identity from a rust belt to a Water Belt city.

The Forward Toledo Plan outlines many ways that we can start to make this change. This includes bigger, potential catalytic projects like the Toledo Cultural Trail, supporting new housing opportunities, and adopting a water-focused identity.

Funding Big Ideas

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[Kayakers on the Maumee River near Delaware Creek Park. Source: City of Toledo]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps for Funding Big Ideas:

» Allocate a fixed portion of Capital Improvement Projects (CIP) funds each year to projects that support the goals of the plan.

» Establish a more active role in grant writing and research to make the best use of limited local dollars and resources.

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail) or direct shoreline access along Lake Erie.

» Shift the regional identity by supporting policies that strengthen the importance of water quality and the environment (e.g., Water Belt).

PLACE 6

Expand Areas for Manufacturing

Highlight Toledo’s strategic position for industrial uses and explore creative options to offer more industrial space for development.

Throughout history, manufacturing has been an essential part of Toledo’s identity and economy. Supported by its geographic location along major transportation corridors and navigable bodies of water, the manufacturing industry flourished and continues to thrive in Toledo today.

While the manufacturing industry has declined since Toledo’s peak population, jobs have remained stable in recent years. Manufacturing jobs offer some of the highest annual wages regionally, often at rates two to three times more than retail or hospitality jobs.¹ Entry and mid-level manufacturing jobs are also in high demand and have a low barrier to entry.

The biggest beneficiaries for these jobs are people without a college degree. However, these residents are more likely to be located within central city neighborhoods and lack vehicle access.. This can create challenges with accessing workforce employment opportunities for both workers and employers.

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[Local industry data. Source: Toledo Region 2021 Comprehensive Economic Development Strategy Report]

Part of the challenge with manufacturing in Toledo is available real estate and space. Many companies are building in rural localities where larger acreage sites are available, even though workers and public infrastructure are limited. The largest developments often exceed 50 to 100 acres, which limit their viability within City limits. Opportunities, however, remain for smaller developments.

Expand Areas for Manufacturing

As shown in yellow on the map below, vacant industrial land in the City has a limited number of sites available. Many of the available sites have barriers to development or expansion, such as flood plains, utility connections, or property access issues.

Allowing limited types of industrial uses in more areas would strengthen Toledo’s manufacturing sector and provide additional job opportunities closer to where many Toledoans live. This could include older vacant sites within neighborhoods, where very few homes remain or where larger vacant commercial shopping centers exist.

Additional industrial areas would also allow us to benefit from the opening of the Gordie Howe International Bridge in 2024 in Detroit. Currently, tractor trailer traffic from the Ambassador Bridge in Detroit accounts for 25% of the trade between the U.S. and Canada. Forty percent of products exported from Ohio go to Canada and nearly all of them must travel through our region. Local real estate experts anticipate that the new bridge will generate activity and interest in the Toledo area for logistics.¹ Analyzing underutilized locations like vacant commercial centers could help us capitalize on this opportunity.

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Expand Areas for Manufacturing

The future of the manufacturing industry will look different than it did 100 years ago. We must be flexible with the ability to provide jobs and reutilization of land/sites that sit vacant in Toledo, particularly in the central City. Local sites could connect a large portion of the regional workforce to accessible opportunities, compared to traditional sites in more remote rural areas.

⬚ figure [Toledo Mirror. Source: City of Toledo]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Expand Areas for Maunfacturing:

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Identify and support a business corridor with emphasis on green energy and logistics.

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Allow smaller-scale industrial uses in a wider variety of areas (e.g., neighborhood business districts or shopping centers) that have minimal impacts on neighborhoods.

» Create and revise land use categories for modern industrial uses that best support the local economy with minimal impacts on neighborhoods (e.g., number of employees, traffic, noise).

PLACE 7

Workforce Opportunities

Promote policies that encourage jobs, job placement, and workforce opportunities within the community.

Economic opportunity is crucial for the success of a region. People not only need jobs, but also proper workforce training and education. A talented and trained workforce is one of the most important factors considered by businesses when selecting a location.¹ Toledoans need opportunities that lead to careers and help the region to remain economically competitive, not only to attract new businesses, but to retain existing businesses and skilled residents.

One factor that should not be overlooked when discussing employment opportunities is that businesses and workers cannot succeed without adequate child care options. Special consideration should be given to these development projects and the role they serve in supporting the regional workforce. Ensuring child care is located in close proximity to major employment areas and conveniently accessible for working parents and guardians helps expand economic opportunities.

Connecting the right people to the right position for their skills is an important piece of building a strong local economy. The Toledo Talent Alignment Strategy, conducted by the Toledo Regional Chamber of Commerce, identified a number of mismatches in the regional workforce.

Mismatches occur when the number of individuals trained and educated in a specific sector exceeds or fails to meet the number of jobs in that sector. In Toledo, there is a surplus of engineers, medical professionals, and information technology professionals when compared to the number of jobs available. However, professional certifications and other entry-level positions in those sectors have a shortage of potential candidates.

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Workforce Opportunities

Balancing this workforce mismatch requires connecting residents with these opportunities. Planning can assist by examining regulations for where businesses or industry can locate and operate. Many of the people most likely to benefit from a low-barrier-to-entry career are often the least likely to access the areas where they are located (e.g. suburban industrial park).

Many older and lower-income areas of the City have some of the highest percentages of households without access to a vehicle, thus limiting access to job opportunities. Reviewing and amending use regulations regarding low-impact industrial users would help reduce barriers to employment while encouraging activation of vacant or underutilized spaces in older central City neighborhoods.

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[Example of pedestrian friendly innovation district in Cincinnati Ohio. Source: MKSK]

“In a world where technology is becoming a greater driver of employment and investment Toledo should plant the seeds for establishing an Institute of Technology of Ohio as was done to create the Medical College of OH.”

-Jesse M.

A surplus of college level degrees relative to jobs in the area means that many graduates will need to relocate and look outside the region for opportunities, also known as “brain drain.” Strengthening those sectors in the region will help to retain the younger and highly educated workforce.

One way to retain this demographic is with an Innovation District. An innovation district is a planned, mixed-use area that is physically compact and transit-accessible, where anchor institutions and businesses cluster together in a campus-like setting to connect with entrepreneurs, start-ups, business incubators, and accelerators.¹ These districts are generally located next to a large employer or in an area that provides a unique setting with a variety of supporting amenities for potential employees (e.g. restaurants, housing, breweries). Many of the successful districts in other cities are built around pedestrian-friendly areas, accessible by multiple modes of transportation.

Workforce Opportunities

The UpTown District in downtown Toledo offers significant potential for this type of project but on a smaller scale. The renovation work at the Jefferson Center building provides anchor office space for the district with supporting businesses, retail, and apartments in close proximity. The vacant properties near the intersection of Madison Avenue and 14th Street provide opportunities for potential redevelopment. This location would provide and support a diversity of businesses and restaurants along Adams Street, Mercy College, several residential developments, and many of the activities and amenities in downtown.

UpTown is not the only potential location for a successful innovation district, but it does offer many of the assets that thriving districts in other cities possess. Other areas near downtown or adjacent to the University of Toledo and the Toledo Hospital are possibilities. Locations could change depending on the needs of the institutions or industries and workforce it supports.

A successful innovation district will require capital and community partners from anchor institutions to create the collaborations that help these areas succeed and thrive. There has been momentum behind the capital component with $38M going to renovate the Jefferson Center, a $20M grant to fund transportation connectivity improvements along Dorr Street to downtown by way of the Jefferson Cycle Track, along with $500M in federal funding, and $125M in state funding available for supporting innovation districts.¹

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[Aerial image highlighting the potential synergies around an innovation district in the UpTown District with the Jefferson Center as an anchor.]

Workforce Opportunities

Securing state and federal funding will require advocacy from local political, institutional, and business community leaders. Efforts are currently underway with the establishment of the Northwest Ohio Innovation Consortium which has a strong emphasis on solar technology and manufacturing industry. An innovation district would create additional jobs in high-tech industries that our region needs to support and retain local college graduates. This initiative would build on existing efforts like Rocket Innovations, an entrepreneurial business incubator at the University of Toledo.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to increase Workforce Opportunities:

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Encourage public investments for the most underserved areas in the City.

» Reduce vacant storefronts by completing a land use analysis with actionable strategies based on individual neighborhood needs.

» Allow smaller scale industrial uses in a wider variety of areas (e.g., neighborhood business districts or shopping centers) that have minimal impacts on neighborhoods.

» Expand mobility options that connect people to regional destinations (e.g., bicycling, rideshare, public transit).

» Support the creation of quality child care and pre-school facilities in all Toledo neighborhoods, acknowledging the role they serve with the workforce.

» Assist or support efforts to establish an innovation district.

PLACE 8

Inclusive Communities

Explore how land use can ensure high quality of life for all residents, with an emphasis on underrepresented populations (e.g. people with disabilities, seniors, the unhoused, minorities).

The Forward Toledo Plan seeks to create a built environment that works for all Toledoans, regardless of ability, race, income, and age. Everyone is entitled to a City that can meet their basic needs and allow economic and social success.

Cities like Toledo face a greater responsibility to accommodate individuals with disabilities, due to its demographics. Toledo has a higher rate of residents with disabilities, both mental and physical, when compared to the state average of Ohio (17.7% among Toledo residents versus 14% in Ohio.)¹ Disabilities greatly impact how individuals interact with the built environment, and can impair or limit the options people have when accessing various land uses in the city.² The strategies presented in this plan can be utilized to improve access for all Toledoans.

The Americans with Disabilities Act (ADA) is a comprehensive federal legislation which ensures the accessibility of sites for all individuals. However, additional steps can be taken in the development review process, and other land uses decisions, to expand upon ADA policy. Concepts such as Universal Design, where a building is constructed to be fully usable regardless of the occupant, can be implemented, and at times required, to ensure developments are accessible to all.³ This plan recommends incorporating universal design guidelines into residential development and reviewing land use policies for accessibility.

Identifying walkable neighborhoods, and neighborhoods in need of sidewalk repair, are recommended steps to prioritizing funding for inclusivity in the built environment. People who utilize mobility assistance devices, are unable to drive, or otherwise lack access to a personal automobile, benefit from improved infrastructure within the City. Adoption of design standards for safe pedestrian and mobility access are a possible method of achieving this goal.

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Inclusive Communities

“Toledo is [like] a food desert, especially as you get further in - more accessibility for not only cheaper food, but better quality.”

-Evan L.

Inclusivity is also important in terms of the racial and social diversity of Toledo. As discussed in Historic Impacts on Neighborhoods, past planning policies have contributed to inequity along racial boundaries. Actively addressing these inequalities in a way that builds an inclusive community is essential to combat displacement and gentrification, which can occur alongside investment and development.

Inclusionary Zoning may help with inclusivity issues related to housing affordability. Inclusionary Zoning is the practice of incentivizing and requiring affordable housing when coupled with new market-rate development. It has been shown to benefit residents of both affordable and market-rate units.¹ Additional strategies include: leveraging underutilized, publicly-owned land; tax incentives; public funding; and accelerated or streamlined approvals.²

Unhoused Toledoans face unique challenges when compared to those in stable housing. Even when money is available, securing housing with limited credit, references, or a permanent address can be challenging. This can create further financial, social, and health problems.

Permanent Supportive Housing (PSH) and other “Housing First” models are one way to address this limitation. PSH provides stable housing for chronically homeless individuals separate from support services. By focusing on this basic need first, some of the physical, mental, and emotional barriers for residents are reduced or removed helping them acclimate back into their community. By adopting a “Housing First” approach, Toledo can address immediate physical needs of residents allowing those who would otherwise be unable to participate socially and economically an opportunity to become independent and involved in their community.³

The primary barrier to construction, procurement, and maintenance of housing at all economic levels is finance. One suggestion to increase available moneys is a Housing Fund. This fund could be financed in part by more stringent enforcement of zoning violations within the city. Greater adherence to the zoning code would improve the condition of problem properties and create a financial source to support broader housing initiatives.

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Inclusive Communities

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[Concert at Glass City Metropark, Source: Metroparks

Supporting Other Themes:

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1 American Community Survey. 2019 5-Year Data. Available here. 2 Center for Disease Control and Prevention. 2020. Disability and Health Overview. Available here. 3 University of Washington. 2022. What is Universal Design Available here. 4 Brown, Karen Destorel. 2001. Expanding Affordable Housing Through Inclusionary Zoning: Lessons from the Washington Metropolitan Area. The Brookings Institute Center for Urban and Metropolitan Policy. 5 National Multifamily Housing Council. 2021. Housing Affordability Tool Kit. Available here. 6 Byrne, Fargo, Montgomery, Munley, and Culhane, 2014. The Relationship between Community Investment in Permanent Supportive Housing and Chronic Homelessness. Published in the Social Service Review, Vol. 88, No. 2.

Strategies:

The City will seek to accomplish the following action steps to support Inclusive Communities:

» Encourage and incentivize affordable housing units as part of new housing developments.

» Identify specific areas throughout the City that best support walkable neighborhoods (e.g. more people living in an area).

» Complete a review of land use policies to ensure that accessibility is adequately addressed.

» Identify a network of slower residential streets that could be repurposed to serve a range of transit options and increase overall connectivity throughout the City.

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Advocate for the adoption and implementation of additional standards that promote mobility for all residents (e.g., Universal Design Standards).

» Expand the role of accessibility in the review of new projects to support underrepresented populations (e.g., seniors, individuals with disabilities).

» Increase the availability and safety of sidewalks throughout the City.

» Collaborate on marketing opportunities that promote living in Toledo to a broad diversity of individuals and families.

» Develop a housing fund to support the construction or maintenance of housing units.

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[Source: Arts Commission - Ellen Dziubek]

[Source: Metroparks]

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PLAY >>>

Strategies for enhancing residents’ quality of life through recreation, nature, and public spaces.

PLAY 1

Park Access

Explore the impacts that nature and public spaces have on residents’ quality of life.

Composing nearly 10% of the City’s total land, parks represent an important public space and provide access to the outdoors for Toledoans.¹ From neighborhood-sized recreational facilities like Smith, Trilby, and Friendship Parks, to large City parks like Ottawa and Navarre Park, and even vast nature preserves like Swan Creek or Manhattan Marsh, Toledo’s public amenities offer a variety of options for gathering, recreation, and reflection. National polls have pointed to the increased importance of parks and open space in the wake of COVID-19, which limited opportunities for socialization.²

The City maintains over 130 public parks and trails in Toledo, with the Metroparks and other organizations offering even more. In fact, the Metroparks have met their pledge to open a park within five miles of every resident in Lucas County.³ According to analysis by the Trust for Public Land, 81% of Toledo residents live within a 10-minute walk of a park. The greatest opportunities for improvement are in the northwest and southwest parts of Toledo.

While the majority of residents are within close proximity to parks and open spaces, accessing them is not always easy, especially without an automobile. It is important to strategize how areas with lower access to natural amenities may be better served, with added consideration given to accessibility for residents who do not own vehicles.

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[Areas in yellow indicate parts of the city with greater than a 10-minute walk to the nearest park. While the majority of areas (those in gray) are within 10-minutes of a park, the City can still improve on connectivity for residents in many areas.]

112 FORWARD TOLEDO GOALS

Park Access

PLAY 1

One strategy to expand park access is to repurpose vacant lots within neighborhoods for walking and biking trails. This strategy increases connectivity, provides safer, separated pedestrian paths, and offers greater opportunities for residents to engage with nature (see Increase Open Space). Demolitions and market shifts in commercial uses also create opportunities for redevelopment, as less land is needed for these uses. Rails-to-Trails is a program that exemplifies the impact

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of reutilizing vacant industrial land for recreational purposes. The program converts old rail lines into multi-use paths and trails. Not only does it help with connectivity, but it also spurs investment in adjacent properties that may otherwise have gone underutilized or vacant.¹ Temporary low-cost installations could also be used to maintain vacant space until an appropriate residential, commercial, or industrial opportunity for the neighborhood arises.

Identifying lower-traffic routes through neighborhoods is an alternative strategy to connecting residents to parks. Portland, Oregon has identified streets that do not have built infrastructure for cyclists, but are generally safer and less stressful to cycle on – called “Neighborhood Greenways.”²

[Example of a neighborhood greenway. Elements may include speed bumps, protected crossings, traffic diversion, wayfinding, and sharrows. These interventions are smaller, easier to implement, and less costly than complete overhauls of existing roads. Source: City of Portland]

Park Access | PLAY 1

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An example of such a Greenway in Toledo could be Cheltenham Drive in Old Orchard. Cheltenham Drive has significantly lower traffic and vehicle speeds than Secor Road, which is just a few blocks over, and provides a safer alternative north-south route. Bicycle boulevards or neighborhood greenways can be designated by purposefully improving wayfinding along these routes, as well as updating walking and cycling maps, in efforts to reduce barriers to park access.

Prioritizing the land along waterways for public-use is another strategy to expand access to parks and open space for Toledo’s residents. The waterways, rivers and lakefront in Toledo are unique geographic features that can act as junctions between different parts of the city and the existing park amenities. Preserving open space along waterways creates a more equitable, sustainable, and appealing city. Supporting improvements along streams and rivers through the city can provide connectivity from underserved areas to existing efforts like the “Nautical Mile” and the Glass City Riverwalk. This is the stretch of formerly-industrial riverfront between the Veterans’ Glass City Skyway and the Anthony Wayne Bridge, which will feature public amenities along both sides of the Maumee

River when completed.¹ This is important as many central City neighborhoods have some of the greatest barriers to using or enjoying the water. Older industrial development along the waterways has cut off access in these neighborhoods. The expansion of the Glass City Riverwalk through formerly industrial properties is evidence of this need for further investment.

In order to better support improvements with waterway connectivity, special consideration should be taken by the City when reviewing developments along the water or when considering the sale of publicly owned land. By requiring water-centric amenities such as outdoor dining, kayak launches, docks or connection to a larger trail system, the City could ensure that private investment in the waterfront results in a public good and amenity. The partnership between the City of Toledo and the Owens Corning headquarters along the Maumee River is a great example of this. A trail exists around their campus and is open to the public.

Park Access

“Great to advertise parks in the areas as inexpensive places for exercise, fun time with children, and meeting others. Maybe some community events at the parks...”

-Connie D.

The Milwaukee River Walk in Wisconsin is an excellent example of a private-public partnership to expand access to the water. Permanent public access is maintained by property owners, and enhancements are funded publicly. A similar arrangement could be explored in Toledo.¹

Parks and other open spaces are an important part of a City’s urban fabric. During the public engagement process for this plan, Toledoans consistently rated connectivity and walkability among top priorities for the City. Improved connectivity to Toledo’s parks and waterways provide opportunities for individuals, regardless of demographics, to gather, exercise, and relax outdoors. The strategies provided in this goal aim to continue expanding access to parks and public space for all of Toledo’s residents.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to improve Park Access:

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Encourage public investments for the most underserved areas in the City.

» Promote the importance of greenspace in neighborhoods and expand availability (e.g., impact on mental health, crime reductions, and overall well-being).

» Establish priority areas that encourage more open space integration with development projects (e.g., the Oak Openings Region).

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

» Develop, or support efforts for, a guide with site layouts of how vacant lots can be repurposed (e.g., Detroit’s Vacant Lot Field Guide).

» Identify and enact a network of slower residential streets for bicycling and alternative modes of transportation that connect to the existing trail system.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

PLAY 2

Support Creative Economy

Explore how the Arts and the Creative Economy impact residents’ quality of life, Toledo’s marketability, and the local economy.

The Creative Economy encompasses a wide variety of industries and a range of careers, skills, goods, and services. Described as “knowledge based,” the Creative Economy utilizes the skills and imagination of those involved to create cultural and economic value.¹ While definitions vary, the six primary creative industries are identified as: Museums and Collections; Performing Arts; Visual Arts and Photography; Film, Radio, & Television; Design and Publishing; and Schools and Services. In 2018,

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[Toledo’s share of the creative economy lags behind peer cities. Akron, a smaller city, has a significantly larger creative economy than Toledo.]

it was estimated that $41.4 Billion of GDP was generated by the Creative Economy in Ohio.² Of that statewide total, Toledo was responsible for less than 4% of the creative GDP, outpaced by Akron, a similarly sized city.

This suggests that there is room for improvement, even if limited in this land use plan. Toledoans have a rich history of admiration and involvement in the arts. There are opportunities to build on existing support for the Creative Economy through land use decisions, such as policy changes, that allow the City to capture more economic and cultural benefits. The Toledo Museum of Art is internationally recognized and free for all visitors. Toledo’s 1% for the Arts Program funds the installation and maintenance of public art through the Arts Commission of Greater Toledo. In addition, historic theaters and music-clubs can be seen across many neighborhoods of the City. A proposed cultural trail is one way to physically connect these different elements of the creative economy to wider audiences through art installations and related business spending, as demonstrated in Indianapolis. The cultural trail is discussed more in depth in Highlight Regional Tourism.

Support Creative Economy

Encouraging opportunities for new creative ventures is also an important strategy to support the Creative Economy. Existing land use regulations can be difficult to work with for do-it-yourself creatives, and they are often not written for short-term pop-ups and other temporary installations. Developing policies to assist the creation of temporary creative spaces and guides to help new businesses navigate local planning regulations could help address barriers to the growth of the creative economy. An example of a successful temporary creative space is the MLK Food Park in Dallas, Texas, which brings a vacant lot to life with new restaurants and spaces to eat.¹

The food park brings vibrancy to a neighborhood, creates activated community gathering spaces and opportunities for new, local businesses to grow. It provides a low-cost storefront and access to customers—two common constraints for new businesses. The space is adaptable and designed to be temporary; therefore necessary changes to improve the park for the community’s needs are easier to achieve.

Another example is the Dequindre Cut Freight Yard in Detroit, MI. The Freight Yard is located along the Dequindre Cut trail, funded in partnership by several institutions and corporations. The space provides an eclectic mix of higher end food, beverage, and art-centric retail. It brings vibrancy to formerly industrial assets in the city, and provides a low-cost storefront and access to a diverse customer base for fledgling creatives.

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[(Above) MLK Food Park in Dallas, Texas. Source: Better Block. (Below) Dequindre Cut Freight Yard in Detroit, Michigan. Source: Detroit Riverfront Conservancy.]

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Support Creative Economy

Encouraging developments similar to the Freight Yard or the MLK Food Park in Toledo’s neighborhoods would act as a catalyst for the creative economy to prosper throughout the city.¹

Longer-term development of the Creative Economy can also be supported by adjustments to land use regulations and city incentive programs. “White boxing” and the strategic use of one-time funding sources can be utilized to rehabilitate structures, which then can be occupied by artists who may not need highly specialized equipment and infrastructure.

White boxing programs have already shown success in drawing specialty retail to downtown. An example of this can be seen in the art gallery featured in the Building Preservation goal. Furthermore, as another example, the City of Boston has implemented unique use categories in its zoning code to allow live-work spaces that encourage artist residencies which would otherwise be impossible and not permitted.²

The Creative Economy is a significant contributor to Ohio and something that should be further supported in Toledo. By embracing new ideas, new uses of land, and encouraging the knowledge, ingenuity, and entrepreneurship of residents, Toledo can leverage the Creative Economy to grow economically and culturally.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Support the Creative Economy:

» Develop guides that help new businesses navigate local planning regulations.

» Identify and support a business corridor with emphasis on green energy and logistics.

» Explore “quick permit” zones in underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones).

» Reuse vacant buildings for shared work space for local entrepreneurs and artists.

» Build momentum for a dedicated walking and biking path that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail).

» Develop zoning guidelines for temporary popup spaces and special events.

» Support the development and preservation of theater space within the City.

PLAY 3

Promote Recreational Opportunities

Improve Toledo’s recreational and cultural assets for all residents and visitors.

Our region is home to many beloved attractions such as the Toledo Zoo, Toledo Art Museum, Mud Hens baseball, and Walleye hockey games. It is also the home of a nationally-recognized, award-winning Metropark system.¹ All of these amenities were referenced with great pride by

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[Responses from Forward Toledo Short Survey Data]

“We have a very unique community surrounded by water. Our residents have extreme passion for our neighborhood. I would like to see a lake theme emphasized in our businesses. Many lake towns / cities celebrate proximity to the lake. I often feel we get overlooked. Toledo sits on a shining jewel.”

• Resident Forward Toledo Survey Response

Forward Toledo survey respondents. There are, however, other attractions beyond the most-recognized among visitors and residents. Toledo has direct access to the Great Lakes, one of the largest bodies of fresh water in the world, and is located near the globally distinct Oak Openings ecosystem as shown in the Preserve Open Space goal. Northwest Ohio also includes a number of federal, state and local parks and preservation areas. Additionally, the City-owned golf courses represent a recreational opportunity and significant portion of Toledo’s available greenspace. Investments are being made to highlight these assets and improve engagement with residents surrounding courses.

Promote Recreational Opportunities PLAY 3

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REGIONAL PARKS & OPEN SPACE There are a number of unique parks & open space within a short drive of Toledo

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The Maumee River is one of the largest waterways on the Great Lakes and provides a variety of opportunities for recreation over single or multiple days (e.g. the Maumee River Water Trail).² Lake Erie is the most biologically productive of the Great Lakes and accounts for nearly fifty percent of fish within the Great Lakes while containing only two percent of the total water.³ Because of this, it is frequently cited as a top destination for sports fishing in the U.S.⁴

Toledo’s City-owned parks are a valuable asset that have been underfunded and under programmed.

Youth programming, along with parks and recreation activities, received a major allocation of $40.5 million dollars as part of the American Rescue Plan Act of 2021. Twelve million dollars went to support one-time investments in capital improvements for sports courts and playground equipment.⁵

Toledo’s variety of recreational amenities form a vital quality of life component in the region. These opportunities should be supported through policies that shape how land is developed and used.

Promote Recreational Opportunities

One way to promote recreational opportunities is through prioritizing how vacant land is reused. For example, the Expand Park Access goal discussed vacant land use with trails that better connect people to recreational assets including the waterfront.

Detroit Future City developed the Field Guide to Working with Lots which provides various ideas to transform vacant lots into potential projects and lays out landscaping designs, maintenance, and costs to the property owner. This guide help reduces uncertainty related to redevelopment and includes a variety of recreational projects and uses.

[Vacant Field Guide Example. Source: Detroit Future City.]

Vacant lot reuse could support additional recreational opportunities and natural habitat for wildlife such as bird watching. This builds on the recreational and tourist opportunity shown in the Highlight Regional Tourism goal. Toledo is located along the flight path for migratory birds due to our proximity to the Great Lakes. Our city is an ideal resting point before making the lengthy journey over Lake Erie. The state of Ohio has 88 viewing locations along Lake Erie. By thoughtfully reusing vacant land within the city limits, viewing sites and natural habitats can be improved closer to existing residents and neighborhoods in Toledo.

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Urban Edge

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Where Do I Grow?

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The Urban Edge can be installed on single or multiple lots and is suitable for corner lots. When built on multiple lots, the design creates a consistent urban edge along roads or alleyways. A few plants can be removed to create a pathway into the lot if desired.

[Vacant Field Guide Example. Source: Detroit Future City.]

Promote Recreational Opportunities

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[Bird Watching Locations in Northern Ohio. Source: Ohio Department of Natural Resources.]

Access to recreation varies throughout the city and the needs of each neighborhood may differ when it comes to recreational opportunities. Engaging neighborhoods and integrating their unique identities into recreation planning will help to maximize the outcomes for residents.

One of the challenges with park and recreational uses is ongoing maintenance. This has been a limitation for expanding and improving City-owned parks and facilities in the past. The strategies discussed here and elsewhere in the plan provide suggestions for how land could be used for greater benefit while keeping maintenance costs in mind.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Promote Recreational Opportunities:

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail) or direct shoreline access along Lake Erie (e.g., Water Belt).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

» Collaborate with other departments (e.g., Economic Development, Lucas County Land Bank) to explore additional reuses of vacant land (e.g., neighborhood parks, trails).

PLAY 4

Highlight Regional Tourism

Showcase the tourism activity that already exists in the region, promote new attractions, and explore how land use policy can strengthen these assets.

Tourism generates a large amount of revenue for Ohio and the Toledo region. It is a meaningful contributor to the overall economy - a fact that is not fully appreciated locally. The way land is used and prioritized in the city has the potential to support or limit tourism in the region.

The eight Ohio counties along the coast of Lake Erie generated $15 billion in tourism related sales in 2017.¹ Lucas County was in the top quarter of all Ohio counties based on sales from tourism related industries such as retail, food and beverage, recreation, and lodging.

In 2021, the state of Ohio generated $47 billion dollars in tourism related sales and supported more than 411,000 jobs.² At a local level, tourism brings in about $2.5 billion dollars annually to the region and supports nearly 23,000 jobs.³

Toledo is home to a number of regional attractions making it ideal for day or weekend trips. Arts and entertainment opportunities include: the Toledo Museum of Art, Toledo Zoo, Walleye hockey, Mudhen’s baseball, the Toledo Symphony, and live theater.

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[Source: Tourism Economics 2018 Report]

Highlight Regional Tourism PLAY 4

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Outdoor recreation is supported by the nationally awarded Metroparks system and the Oak Openings Region, a globally rare ecosystem. Toledoans enjoy a variety of annual outdoor events including the walleye run and the “biggest week in birding”. These natural assets help attract visitors to the area and provide economic benefits for local businesses. Furthermore, local investments continue to expand this reach for youth sports tournaments such as Toledo’s upgrades to the soccer fields at Schneider Park or baseball fields at Scott Park and Detwiler.

Many of these activities go beyond the scope of a traditional land use plan. However, there are ways this plan can support the continued growth of the tourism industry. Examples include: prioritizing land along waterways for public use (e.g. Glass City Riverwalk), increasing connectivity between existing assets (e.g. multi-use trails) or preserving more open space for recreation and conservation.

Annual Tourism Activity¹

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Highlight Regional Tourism

PLAY 4

One larger idea that supports tourism in our city is the Toledo Cultural Trail. The trail is modeled after Indianapolis which constructed an 8-mile trail that connects cultural assets and districts downtown using separated space for bicycles and pedestrians. The trail attracts more than 1 million users annually and has been a benefit for local businesses.¹ Part of the success has been attributed to the safety of the trail which remains buffered from automobile traffic.

The Arts Commission of Greater Toledo started to explore potential paths for a similar idea in Toledo by analyzing art, recreation, and other cultural assets within the downtown and adjacent neighborhoods. This is highly conceptual at this stage, but illustrates what might be possible in Toledo.

Land use decisions can also help create spaces for events to happen throughout the City. This starts with acknowledging the history and uniqueness of Toledo’s many neighborhoods and intentionally integrating that character into local development decisions. Creating spaces and places that people want to enjoy benefits the residents of a neighborhood while providing destinations and potential opportunities for visitors.

This could include ideas such as traffic calming solutions being implemented along pedestrian friendly roadways like Broadway Street in the Old South End or the preservation, storytelling, and celebration of an area like the Old West End with its annual festival.

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Before and after images of the Indianapolis Cultural Trail. Source: Google Street View.]

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[Potential paths for a Toledo Cultural Trail based on existing assets including parks, businesses, or public art. Source: The Arts Commission of Greater Toledo]

Highlight Regional Tourism

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[Attractions such as the Toledo Zoo have brought visitors to Toledo for generations. Source: Toledo-Lucas County Public Library.]

Finally, the City could adopt policies that further promote our unique environment through native plants included in new development projects and City public works. Plantings specific to the Oak Opening region help support and strengthen the unique ecosystem while raising awareness for environmental education, stewardship, and outdoor recreation opportunities.

Supporting Other Themes:

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1 Tourism Economics. 2018. The Economic Impact of Tourism in the Lake Region of Ohio. 2 Tourism Ohio. 2023. 2021 Economic Impact Data. Available here. 3 Toledo Blade. 2021. Gov. DeWine visits Toledo to kick off summer tourism. Available here. 4 a. Toledo Zoo. 2022. Annual Report. Available here. b. Toledo Blade. April 4, 2022. Fifth Third Field, home of the Mud Hens, hits 20th anniversary. Available here. c. Toledo Blade. 2022. How the Walleye are using last year's finals loss as a motivating tool. Calculated using average regular game attendance and number of games per season. Available here. d. The Biggest Week in Birding. 2024. 2024 Visitor's Guide. Available here. e. Toledo Art Museum. 2022. Annual Report. Available here. 5 Indianapolis Cultural Trail. Available here. Accessed 2/23/23.

Strategies:

The City will seek to accomplish the following action steps to Highlight Regional Tourism:

» Honor the region’s unique natural features such as the Oak Openings Region and the Maumee Watershed through day-to-day decision-making.

» Shift the regional identity by supporting policies that strengthen the importance of water quality and the environment (e.g. Water Belt).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g. Indianapolis Cultural Trail) or direct shoreline access along Lake Erie.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g. Swan Creek Riverwalk).

PLAY 5

Support Childhood Development

Examine how recreation, quality education, and cultural opportunities positively affect childhood development.

Children are a significant part of Toledo’s population with 23.3% of Toledoans under the age of 18¹. This underscores the need for providing positive outcomes for families and youth in the City. It is also the reason this is a focus of the plan. Land use changes can have indirect impacts on childhood development through decisions which increase access to greenspace, parks, and other amenities that support youth.

One planning strategy to support youth development is to strengthen access between schools and public parks. Similar to how an adult can benefit by having convenient access to work, home, and essential shopping needs in close proximity, children can benefit from better access between their places of education and recreation. As explored in Park Access, reutilizing vacant lots and expanding Rails-to-Trails programs to create connections from schools to parks and neighborhoods is one way to achieve this goal.

A more comprehensive review of greenspace developments in the City can also benefit youth access to recreational spaces. Toledo zoning code requires the consolidation of open space in new residential and mixed-use developments as an amenity for residents. There are, however, no requirements that open space be designed for recreation or other activities. By incentivizing or requiring greater activation of open green space in new developments (e.g. playground equipment, shade structures, etc.), the City can ensure that as it develops the benefits are shared with the youth of the community.

Enhancing the overall independence of children and their ability to navigate Toledo safely can increase childhood participation in the community and reduce reliance on parents for transportation and child care. This could include additional infrastructure as development occurs to expand public transit networks and pedestrian connections or streamlining development reviews to

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Support Childhood Development

make it easier to install pedestrian enhancements. Improved mobility allows youth flexibility in school, work, and social routines. One example of a program designed to increase the independence of youth navigating the city is the Youth Summer Blast Pass program from TARTA. This program allows youth unlimited rides during summer hours.¹

Expanding investment and opportunities in the most underserved areas of Toledo is essential to supporting childhood development. As mentioned in Historical Impacts on Neighborhoods, years of repeated disinvestment have limited redevelopment opportunities within many central City neighborhoods.

Land use planning plays a role in childhood development, however most work takes place in other areas. Youth can contribute to the built environment through placemaking. An example of an existing opportunity in Toledo is the Young Artists at Work (YAAW) program. Administered by the Arts Commission of Greater Toledo, the program

introduces youth to the process of public art, design, and developing art as a business.²

YAAW provides a unique lens into the integration of youth education, community development, and the built environment. Murals painted by YAAW students can be found all throughout the city, usually sponsored and displayed on local businesses.

Exploring additional ways to integrate youth involvement in planning, design, and land use decisions in Toledo should also be prioritized. Youth involvement can be encouraged through “community workshops” held in schools, libraries, community centers and park facilities. Creating opportunities for youth engagement in areas where they already frequent makes the planning and engagement process more accessible. One possibility is partnering with the Parks and Recreation Youth Advisory Board, a group of high school students that is already highly engaged in decision-making around the City park system .

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[A Mural painted by YAAW participants on Market Street. Source: The Arts Commission of Greater Toledo]

Support Childhood Development

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The City of Boulder Colorado has been recognized internationally as a Child Friendly City.¹ Thanks to a robust engagement process facilitated by the non-profit Growing Up Boulder, the City is able to integrate youth voices into larger planning projects such as civic center redevelopment.² Providing more opportunities for youth engagement in the development review process would encourage new projects to greater support the needs of children.

Many of the City’s youngest residents will grow into the community leaders, business owners, and stakeholders building Toledo’s future. By integrating youth into the planning process, the City can foster both a sense of pride and stewardship among its youngest residents.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Support Childhood Development:

» Strengthen access between schools and public parks.

» Encourage public investments for the most underserved areas in the City.

» Modify the Toledo Zoning Code’s Open Space standards to require a more purposeful use of green space (e.g., large grass areas must provide a public amenity).

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Identify specific areas throughout the City that best support walkable neighborhoods (e.g., more people living in an area).

» Develop a list of residential streets that could periodically be converted into open space for residents (i.e., Open Streets).

» Support a streamlined development review process to install and improve crosswalks and pedestrian infrastructure.

» Increase the availability and safety of sidewalks throughout the City.

» Engage youth in community planning initiatives (e.g., engaging the Parks and Recreation Youth Advisory Board).

PLAY 6

Encourage Social Opportunities

Explore the ways that parks and open spaces can create a sense of belonging and community.

Land Use can improve the public good of a community in a variety of ways. This commonly includes economic opportunities, safety, and shelter, and to a lesser degree, social opportunity. Many might not equate the public good together with social connections, but doing so indicates the importance and purpose of shared space.¹ Land use planning ultimately aims to create a quality city for people to live in and interact with each other through the built environment. These opportunities can occur in a variety of spaces, provided they are designed in a way that encourages participation.

One of the most common public places people gather are parks and open spaces. Toledo’s many public parks provide opportunities for residents and visitors to gather free of charge, such as the Ottawa Park concert series or special events at neighborhood parks. Public parks also provide an outdoor gathering place for friends and family who do not have a private yard with a lawn or other outdoor amenities available at their home. A national survey found 85% of respondents consider access to high-quality parks and recreation desirable when moving to a new location.² However, as explored in Park Access, not all of these quality public spaces are distributed equally.

Financial trends during the Great Recession impacted park funding with spending dropping 21.2% between 2009 and 2013.³ The strained resources were further highlighted during the COVID-19 pandemic at a time that public parks and spaces saw increased demand.

One strategy to improve social opportunities in parks and open space is to consider a percentage of yearly capital improvement funding dedicated to park or pedestrian-oriented areas.

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Encourage Social Opportunities

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[Map showing youth community centers, and libraries within Census Tracts. Source: U.S. Census 2020 and Toledo Lucas County Plan Commission.]

Another option to enhance parks is public private partnerships. The 50/50 Park Partners initiative in Houston, Texas, is a public-private partnership that aims to improve 50 neighborhood parks in their City. Businesses commit a 50% financial match for park improvements while the City of Houston provides the other 50% of funding. The program is scheduled to upgrade 22 neighborhood parks by the end of 2023.¹

Social Infrastructure stretches beyond parks and open space. Public amenities such as community centers, libraries, and well-activated sidewalks or pedestrian malls all provide opportunities for increasing social engagement.

Private spaces can also be an important piece of social infrastructure. Restaurants, retail stores, schools, churches, salons, and many other places are all opportunities for Toledoans to meet, interact, connect, and grow. Increasing connectivity between neighborhoods and businesses, especially on a pedestrian and bicycle level, creates opportunities for additional social encounters and relationships among neighbors.

Social distancing, as required by the COVID-19 pandemic, brought a critical light to the availability of places for people to gather. One solution to the growing demand for greater quantities of open space is open streets. Cities across the nation, from NYC to LA, have embraced the idea of closing down roads to automobile traffic and reusing the space for people. Rather than lined with idling cars and trucks, these spaces have become busy with restaurant goers, families, and tourists. Toledo’s grid-patterned street network make it an ideal candidate to seasonally or permanently open streets to people and close them to automobiles without greatly interrupting the flow and accessibility of traffic. Short-term proof of concept of this already occurs frequently around Hensville in downtown.

Encourage Social Opportunities

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[(Top) North Huron becomes a bustling hub of activity when cars are removed during events such as the Art Loop. Source: The Arts Commission of Greater Toledo. (Bottom) Example of the open street concept where roads temporarily closed to automobile traffic to encourage pedestrian use. Source: New York City DOT]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Encourage Social Opportunities:

» Identify neighborhoods where social infrastructure (e.g., gathering spaces, community centers, parks) is lacking and prioritize land uses that benefit resident’s quality of life.

» Promote the importance of greenspace in neighborhoods and expand availability (e.g., impact on mental health, crime reductions, and overall well-being).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Identify locations for creative placemaking with an emphasis on disinvested areas (e.g., landmarks or gathering spaces).

» Incorporate additional design elements that connect people to places such as landscaping, green stormwater projects, or temporary low-cost changes (e.g., parklets or patio space that improve public space).

» Prioritize more Capital Improvement Funding for park or pedestrian uses (e.g., consider a % of overall CIP budget).

[Source: Lucas County Land Bank]

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SUSTAIN >>>

Strategies for maintaining our natural environment, accessing healthy food, and promoting efficient energy.

Water Belt

Explore an identity shift from “Rust Belt” to “Water Belt” due to Toledo’s unique position on the Great Lakes and the ways this shapes Toledo’s culture.

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[A map of the six largest U.S. cities located along the great lakes. Source: U.S. Census data.]

Toledo is the 6[^th] largest U.S. city located on the Great Lakes.¹ However, the more common association for Toledo is as a Rust Belt city – an industrial manufacturing community experiencing a declining population. This is a distinction Toledo shares with many other cities across the U.S., and yet, Toledo is uniquely located on one of the largest bodies of fresh water in the world.

What would it look like if we modeled our City around this unique distinction? Future success as a water belt community requires paying close attention to our environment, waterways, and land development. It emphasizes sustainability and stewardship through the conservation of our natural resources.

The Maumee River watershed is one of the largest among any of the Great Lakes tributaries – spanning from Fort Wayne, Indiana and parts of southeast Michigan to Lake Erie.² The watershed has faced numerous environmental challenges over the years, but efforts are being made to improve water quality. This was especially alarming after the 2014 algal bloom crisis, which prevented northwest Ohio residents from drinking tap water from Lake Erie due to the presence of toxic bacterial contamination.

Water Belt

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[The Maumee River Water Trail. Source Metroparks Toledo.]

As communities across the United States grapple with unprecedented droughts and water scarcity, Toledo is positioned to capitalize on our location and provide water for future generations. This requires that we care for our land and natural resources sustainably.

Many challenges to addressing water quality remain outside of this type of document, such as nutrient runoff from agriculture. One way that planning can support the watershed is through how land is developed. Encouraging projects that are more sustainable (e.g. smaller building footprints, green stormwater improvement projects, landscape requirements) and preserving more open space help address water quality issues in the future.

Water quality is also vital to the natural recreation and tourism of our region such as: fishing, birding, the Oak Openings Region (a globally distinct ecosystem) and water recreation like boating. This includes newer initiatives like the Maumee River Water Trail, a 107-mile trail from Lake Erie to the Ohio-Indiana Border, established in 2018, that allows for multi-day kayak/canoe trips. The importance of water-access for recreation was confirmed by results from our survey, which show that 32% of respondents visit Toledo’s waterways more than 10 times a year.¹

“Our water access is almost criminally underutilized as a city and is (quite literally) the key to our future.”

-Anthony B

Water Belt

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[Source: Metroparks]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to implement the Water Belt:

» Shift the regional identity by supporting policies that strengthen the importance of water quality and the environment (e.g., Water Belt).

» Honor the region’s unique natural features such as the Oak Openings Region and the Maumee Watershed through day to day decision-making.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

» Acknowledge Toledo as a sustainable City that will be less affected by extreme weather due to geographical location (e.g., drought in Western states).

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail) or direct shoreline access along Lake Erie (e.g., Water Belt).

SUSTAIN 2

Reduce Pollution

Promote land use and transportation options which are environmentally friendly.

Toledo benefits from a variety of natural resources in our region. We have abundant access to fresh water, top-ranked Metroparks, and unique ecological biodiversity in the Oak Openings region. These assets, as well as the air we breathe and the parks, lawns and gardens many residents maintain, can be harmed by pollution. The mismanagement of land can exacerbate pollution in our community, whether through urban sprawl, reliance on automobiles, reduction in greenspace, or increased paving and hardscape. The goal of reducing pollution through improved land use planning and transportation options aims to improve the sustainability, value, and health of the city.

Waterways are one of the city’s most vulnerable resources, however it is also one most at risk of harm from pollution.

Toledo’s aging sewer system has historically discharged into waterways during heavy rain, causing a decrease in overall water quality in Lake Erie. Recently completed programs such as the Toledo Waterways Initiative take steps to improve conditions caused by heavy rain; however, land use plays a major role in the quantity of runoff entering the stormwater sewer system.¹

Permeable ground (e.g., soil) acts as a natural sponge for rainfall, reducing the amount of water sheet flowing into the system, whereas impervious surfaces (e.g., pavement, buildings) cannot absorb any water which contributes to strain on the system. The water flowing over impervious surfaces not only overloads the stormwater sewer system, but often carries litter, chemicals, and other pollutants into the waterways.²

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[Source: Metroparks]

Reduce Pollution | SUSTAIN 2

A direct intervention the City can take is reducing the amount of land that developments are allowed to cover with impervious surfaces. Current regulations allow for 85% or greater building coverage in all commercial zoning districts.³

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[Trees, shrubs, and ground cover plantings are all required during the development process. Source: Smithgroup]

Traditional stormwater management tools (e.g., underground detention, retention & detention ponds) mainly reduce the speed water flows into the public sewer system. Environmentally friendly options such as green stormwater infrastructure (GSI) reduce the speed and quantity of water entering waterways, while also providing benefits to the local ecosystem, erosion control, and organic water filtration.⁹

Incentive programs can be incorporated into the development approval process to encourage the installation of GSI. However, cities can also adopt explicit requirements. Philadelphia, Pennsylvania, utilizes a fee structure model which charges developments more for impervious coverage and has resulted in the frequent implementation of green infrastructure in development.⁴

New construction projects in the City of Toledo are required to install landscaping areas dependent on the type and location of the development.⁵ These standards include size requirements for the landscaping area and the quantity of trees and plants to be installed.

Adjustments to landscaping standards are granted on a case-by-case basis, often on the basis of size constraints or other site limitations. Better defining and outlining the qualifications for a reduction or substitution in the landscaping standards could provide incentive for new developments to preserve existing landscaping. Credits could also be required for more stringent protection of existing mature trees and native plantings. These strategies help support plants that provide shade, oxygen, and beauty to Toledo.

138 FORWARD TOLEDO GOALS

Reduce Pollution | SUSTAIN 2

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[Estimated causes of greenhouse gas emissions. Source: U.S. Environmental Protection Agency, Inventory of greenhouse gas emissions and sinks 1990-2007, April 2009.]

Alongside land use, transportation modes play a major role in air pollution and overall environmental health. The air pollutants created by automobiles can trigger health problems such as asthma, or in extreme cases, lung cancer.¹ Communities of color are particularly impacted by environmental pollution due to proximity to major roadways, highways, and industrial sites (see Historic Impacts on Neighborhoods).² Reducing automobile dependency as well as the distance of daily vehicle trips minimizes the total quantity of pollution generated by personal automobiles. Improving the overall ability to walk or bike in Toledo is key to reducing reliance on the automobile.

Walkability can be increased with the built environment resources already in Toledo. Adjusting zoning and building code regulations to allow increased densities or the reuse of buildings in neighborhoods to provide jobs, goods, and services to residents reduces the distance required to travel for daily trips. Increased density has the added benefit of reducing the quantity of hardscape required in the roads and parking lots that connect people together.

Reusing existing buildings not only provides benefits outlined in Building Preservation, but also reduces the waste put into the landfill and the pollution created from new construction in the form of embodied carbon.³ New developments can also assist in the reduction of pollution and improving environmental health through energy efficiencies, compact developments, with multiple transportation modes.

COMPREHENSIVE LAND USE PLAN 139

Reduce Pollution

Policy changes that promote the integration of multiple transit modes (e.g. multi-use trails, paths, sidewalks, bus stops and routes) on a site should be a focus of future developments. Generating design standards for mixed-use developments near public transit routes helps support existing options beyond personal automobiles. These improvements can be further supported by prioritizing the installation of pedestrian infrastructure (e.g., crosswalks) and other safety mechanisms in both private and public spaces.

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Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Reduce Pollution:

» Reduce the amount of pavement and buildings that can cover a site and require more green space.

» Establish criteria for when the City should approve adjustments for required landscaping and open space during new construction.

» Provide incentives for developers to install green stormwater infrastructure (e.g., rain gardens).

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Expand mobility options that connect people to regional destinations (e.g., bicycling, rideshare, public transit).

» Reduce reliance on cars by establishing priority areas in the City that support walking for local trips.

» Support a streamlined development review process to install and improve crosswalks and pedestrian infrastructure.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

Healthy Food Access

Study options and remove barriers to increase access to healthy food for all residents.

Access to healthy food has long been a problem for cities with declining populations and sprawling development. The term “food desert” has been used over the past decades to describe areas that have little to no availability of fresh, affordable produce and other healthy food options. However, this term is increasingly being replaced as communities become more aware of the role structural racism and practices like redlining have played in creating food environments where minority populations are more likely to struggle with barriers to accessing healthy food (see Historic Impacts on Neighborhoods).

Part of the impact on food access has been changes in the location of grocery stores over the last 50 years. The rise of consolidated, big-box stores coincided with suburban sprawl and “White Flight,” resulting in smaller grocery stores going out of business and central city neighborhoods being deserted by food outlets that relocated to the suburbs to serve wealthier populations with newer, larger stores.

As discussed in the Historic Impact on Neighborhoods goal, disinvestment has continued across neighborhood and income lines, resulting in a negative impact on the health and well-being of minority populations. Nearly 40% of all city neighborhoods surveyed in Toledo's existing land use plan, completed in 2000, indicated a need for grocery stores or service-based businesses.¹

Another contributing factor is one of competition. As shown on the map, not all locations closed completely in older neighborhoods. Stores in 1966 (red dots) overlapped at five (5) locations compared to 2023. While the central City lost major corporate stores, such as Kroger, independent grocers continue to operate in many of the same locations. This is a trend common in many cities throughout the U.S. The net effect resulted in less convenience to food outlets and higher prices at independent grocers within the central City neighborhoods.

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[Map showing location of grocery stores over time in Toledo using historical records and present day data.]

Healthy Food Access

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Zoning regulations can help with food access through the establishment of farmers’ markets and other outlets that provide healthier food choices in neighborhoods.¹ Additionally, zoning and land-use laws have been used to limit the number of fast-food restaurants or convenience stores, which are often associated with less healthy food options.²

Traditional strategies to attract full-service grocery stores face substantial challenges. Population declines and housing demolitions in older neighborhoods lack the customer base needed to support these stores. Research suggests a 50,000 sq. ft. grocery store requires a minimum of 10,000 people to support it.³

One strategy the City could explore to increase access to healthy food is through increasing the residential zoning density where vacancy and demolitions have impacted central City neighborhoods.

Low-density residential zoning affects both the viability of transportation alternatives to the automobile and the inequality that low-income residents are more likely to live in areas with unhealthy food options. When zoning restricts density and a lack of density restricts alternatives to the automobile, physical activity and health likely suffer.⁴

By increasing residential zoning density standards, more housing options (Promote Housing Variety) can be provided and increase the options for housing affordability. As a result, when the density of an area increases, there is more likelihood for healthy food access in underserved areas.

Another popular initiative to increase access to healthy food is urban agriculture. Urban agriculture encourages the growth of produce, herbs, and other food products in areas that lack access to healthy food. Many communities in Ohio, including Toledo, have already adopted policies to

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Healthy Food Access SUSTAIN 3

encourage this type of use. This provides a much-needed source of fresh and affordable produce to those living in areas with low access to healthy foods.

Toledo’s urban agriculture policies have been in place since 2018, however more could be done to support the adoption of this practice in the community. Increasing the establishment of retail farmer’s markets, as well as urban farms and educational programs that teach citizens how to grow their own food, can support healthy food production efforts. Partnerships could also be explored with local organizations to encourage additional urban agriculture, potentially through public health policy changes.

Cities like Minneapolis, Minnesota have adopted legislation requiring all retail food stores, including convenience stores, to provide a certain percentage of product as fresh produce. Follow-up from the Minneapolis School of Public Health shows improved access to healthy food as a result of the policy, although enforcement remains a challenge. Similar policy changes could be explored in Toledo, but partnerships would need to be identified to address compliance issues.¹

One of the ways planning can aid in addressing food access is through the involvement and participation in a local food policy council. Food policy councils are diverse, cross-sector groups of food-system stakeholders who collaborate to transform their local food systems. These groups can include actors from the government, agriculture industry, community development, academia, and residents.² Work can range from identifying and filling gaps in local food system infrastructure to campaigning for public policy change around issues like food access and waste reduction.

A straightforward approach would be the formation of a food policy council similar to Cleveland and Cuyahoga County. They are addressing barriers to food access, starting pilot projects, and improving local regulations around food systems. Another example is Baltimore’s Food Policy Initiative (BFPI). This initiative engages a 60-member Food Policy Action Coalition, and Resident Food Equity Advisors work with community members supported by stipends to offer neighborhood insights to the BFPI. Their initiative also has staffed positions within the Planning Department, including a “Food Policy Director.”³ To date, this new planning division has secured $11.07 million in funding for improving food access in the City, published a Food Access policy brief, and launched a community engagement process for addressing food system issues.⁴

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COMPREHENSIVE LAND USE PLAN 143

Healthy Food Access

Toledo could join other community stakeholders in creating a local food policy council, or go further and staff a new City position to spearhead the initiative and provide guidance on the way land use decisions interact with the food system.

Access to healthy food is an essential component of any neighborhood. By promoting initiatives such as urban agriculture and implementing better land-use controls like increasing zoning density, Toledo can create a healthier environment for residents and improve overall food access within the community.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to implement Healthy Food Access:

» Increase opportunities that make it easier to access healthy food (e.g., direct routes, store locations).

» Reduce vacant storefronts by completing a land use analysis with actionable strategies based on individual neighborhood needs.

» Explore efforts to open independent grocery stores and prioritize in areas where vehicle ownership is low.

» Review and modify zoning regulations to incentivize grocery stores with fresh food over other types of stores (e.g., reduced parking requirements, loading zones, permitted locations).

» Explore partnerships that create more community gardens and locally grown food (e.g., urban agriculture).

1 Toledo 20/20 Comprehensive Plan Update. 2011. 2 Jilcott Pitts, S.B., Acheson, M.L.M., Ward, R.K. et al. 2015. Disparities in healthy food zoning, farmers' market availability, and fruit and vegetable consumption among North Carolina residents. Arch Public Health 73, 35. Available here. 3 BTG Research Brief. April 2012. Zoning for Healthy Food Access Varies by Community Income. Available here. 4 Lisa M. Feldstein. 2013. Zoning and Land Use Controls: Beyond Agriculture. 65 Me. L. Rev. 467. Available here. 5 Mark Hinshaw and Brian Vanneman. March 2010. The Supermarket as a Neighborhood Building Block. Planning Magazine. Available here. 6 Health Affairs. September 30, 2021. Low-Density Zoning, Health, And Health Equity. Available here. 7 Minneapolis School of Public Health, University of Minnesota. 2018. The Minneapolis Staple Foods Ordinance Evaluation Study. Available here. 8 Ohio Food Policy Network. October 2023. What is a local food council? Available here. 9 Department of Planning, City of Baltimore, Maryland. Overview of Baltimore Food Policy Initiative (BFPI). Available here. 10 Department of Planning, City of Baltimore, Maryland. 2022 Accomplishments. Available here.

Promote Native Plants

Explore the many benefits of native plantings and evaluate how these species can help improve the regional ecosystem.

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Native plants provide many different ecological and environmental benefits. One of the most important purposes they serve is being more drought-tolerant than non-native plants, which reduces maintenance costs and increases longevity. They are also better at filtering stormwater runoff, which helps reduce pollution in our public waterways.¹ These abilities are due to the extensive and deep root systems of native plants (as shown in the image above) which slow down runoff, reduce soil erosion, and absorb contaminated water before it gets into the nearby waterways.²

[Root systems of Non-Native vs. Native Mid-Atlantic Plants. Source: National Wildlife Federation]

Promote Native Plants

This resiliency is important in the Great Lakes region, where water quality issues are intensified by agricultural practices and climate change.¹

The benefits of native plants go beyond water quality. They are more resistant to pests and diseases, resulting in less maintenance, fewer pesticides, and lower cost to property owners.²

As discussed in Improve Tree Canopy, the Urban Heat Island Effect has a greater impact on the areas of disinvestment with a lack of street trees and green space within urban environments. Using native species, along with other trees and plants, can help reduce the impacts of increased surface temperatures, particularly in central city areas with high amounts of impervious surfaces or pavement (e.g., shopping centers).

Native plants provide a better habitat for wildlife, which is important for maintaining biodiversity and the overall ecosystem’s health. Native plants support a wider range of pollinators and other beneficial insects better than traditional lawns and non-native plants.² Creating wildlife habitat can help address biodiversity species loss due to climate change issues. Nature-based climate solutions, which are actions that both benefit wildlife and mitigate climate change, are being widely adopted in many communities. Native plants have a large role to play in these solutions by locking up planet-warming carbon dioxide, as well as providing food and shelter for insects, bees, and butterflies, all while making a neighborhood more attractive and livable.³

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Promote Native Plants SUSTAIN 4

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These habitats can also generate tourism and support businesses in communities that are known for their natural attractions, like northwest Ohio’s “Biggest Week in Birding” (see Promote Recreational Opportunities).

Zoning regulations and land use policies have a role in promoting the use of native plantings and pollinator plant species. Specific regulations for native plantings vary from city to city. Some cities require a certain percentage of all landscaping areas to be planted with native plants, or in specific areas, such as street trees or boulevard medians.

Two examples of municipal zoning codes that have implemented landscaping regulations for native plant species are Sanibel, Florida and Schaumburg, Illinois. In the City of Sanibel, new developments and redevelopments require a minimum 75% of native vegetation to be used in all landscaping, with the remaining 25% restricted to only noncompeting plant species. In the City of Schaumburg, tree and shrub species in designated natural landscaped areas must be 100% native plant species.¹

Following the success of these cities, the City of Toledo could require that native plantings be included for all new developments. Percentage-based metrics or minimum dimensional standards could be implemented as a clear guideline for developments to install native plantings.

Another strategy to assist in the installation and use of native plantings is to adopt a best practices guide to improve overall plant health. The guide would also help ensure the landscaped areas with native plants would be intentional, orderly, and aesthetically pleasing to residents and visitors.

Additionally, the cities with native plant regulations often have specific lists of native plants that are approved for use in landscaping, in order to reduce uncertainty in the design process. The City could partner with local experts and conservation organizations to determine an official City of Toledo native plantings list.

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Promote Native Plants

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[Monroe Street United Methodist Church – Sacred Grounds rain garden. Source: Wild Ones Oak Openings]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Promote Native Plants:

» Adopt a planting “best practices” guide to improve plant health.

» Require native plantings be included as part of the landscaping for all new developments.

» Partner with local experts to determine a City of Toledo official planting list.

» Promote the importance of greenspace in neighborhoods and expand availability (e.g., impact on mental health, crime reductions, and overall well-being).

1 Gunpowder Riverkeeper. July 6, 2021. It’s a Great Time to Take the Native Plant Pledge! Available here. 2 The Importance of Native Plants, Clean Water Education Partnership (CWEP). Available here. Accessed October 2023. 3 Bagne, K.; Ford, P.; Reeves, M. November 2012. Grasslands. U.S. Department of Agriculture, Forest Service, Climate Change Resource Center. Available here. 4 East Multnomah Soil & Water Conservation District. What’s so great about native plants? Available here. Accessed October 2023. 5 Shephard, M. Xerces Society. April 2022. For Wildlife And Humans, Native Plants Are A Key To Climate Resilience. Available here. 6 Sustainable Development Code. Native Plants/Vegetation. Available here. Accessed October 2023

Preserve Open Space

Explore the benefits of open space and natural areas and evaluate practices to promote the preservation of green space alongside future development.

This plan has demonstrated that people value open green space and access to natural areas (see Promote Recreational Opportunities). There are numerous health and social benefits to living near open green space such as improved health, lower stress levels, safer neighborhoods, and increased social connections.¹ Large percentages of green space are also located in some of the most populated cities in the U.S. like Minneapolis, San Francisco, Boston, Chicago, and New York.²

At a local level, Toledo lags behind many large cities in Ohio when it comes to green space. The per capita measure to the right provides a comparable ratio between cities of different sizes based on land area and the number of people. Toledo has the lowest amount of greenspace per capita falling below Akron with a similar population size.³

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Preserve Open Space

The graphic below helps to visualize the lack of green space throughout the community. Areas in dark red are almost completely covered by an impervious surface such as pavement and parking lots or building rooftops. Higher levels of impervious coverage have been shown to impact water quality after major storm events and cause variations in surface temperatures by several degrees between neighborhoods, impacting overall health (i.e., urban heat island).¹,²

Higher amounts of coverage are especially noticeable within central City neighborhoods. These were areas identified within the disinvestment boundary discussed in the Historic Impact on Neighborhoods goal. The disparity in access to open space underscores the work that needs to be done to improve Toledo’s quality of life.

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[Land coverage by buildings, parking areas, or pavement. Darker areas are almost entirely covered. Source: United States Geological Survey, National Land Coverage Database 2019.]

Preserve Open Space SUSTAIN 5

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Many neighborhoods have undeveloped land in the form of vacant lots. There is potential to repurpose some of this land into open space or green space to reduce the number of covered areas, especially in central City neighborhoods.

One strategy to assist in the transition of vacant lots is the integration of a vacant lot reuse guide. The City of Detroit created a field guide that provides ideas and costs for different reuses along with a clear understanding of the development process. The idea of a vacant lot reuse guide is further detailed in the Promote Recreational Opportunities and the Expand Park Access goals.

In addition to direct benefits to residents, there are also environmental factors to consider. Our area is home to the Oak Openings Region, a globally rare ecosystem that contains over 1,300 sq. mi. of land between Michigan and Ohio. The unique region has over 180 rare plants species and accounts for nearly one-third of all rare plant species found in Ohio. This globally unique region has led some to call the Oak Openings one of the 200 natural “Last Greatest Places on Earth”.¹

The region, which was once estimated to be ten times larger, saw substantial habitat loss due to urban development and more recent suburban sprawl. Organizations such as the Metroparks, Nature Conservancy, and Black Swamp Conservancy are leading efforts to help restore crucial parts of this habit. However, there are opportunities to assist within the City limits.

As seen from the map on the following page, the Oak Openings region extends through portions of west Toledo. The way we use land can have a direct impact on this rare ecosystem, wildlife habitats, and its role as a migration corridor. One way to support the region is through the creation of priority areas in the City for additional open space and native plantings. These areas would be designed to reestablish and support the Oak Openings region as new development occurs.

Areas near existing parks and open space, as well as within residential areas, should be prioritized for establishing Oak Openings habitat. This space could be used to help increase connectivity and park access, support native plantings, or expand existing open spaces.

Preserve Open Space

Oak Openings Region

A globally rare ecosystem spanning 1,300 sq. mi. is found within our backyard.

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[An overview of the Oak Openings Region. Source: OakOpenings.org]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Preserve Open Space:

» Prioritize land uses that strengthen the region’s parks, open spaces, and cultural assets (e.g., waterfront access, park proximity to residents).

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Establish priority areas that encourage more open space integration with development projects (e.g., the Oak Openings Region).

» Reduce the amount of pavement and buildings that can cover a site and require more green space.

» Develop or support efforts for a guide with site layouts of how vacant lots can be repurposed (e.g., Detroit’s Vacant Lot Field Guide).

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

SUSTAIN 6

Improve Tree Canopy

Recognize the benefits of trees in both the natural and built environment, as well as for our population.

Trees play a valuable role in our communities, especially as land development in the U.S. continues to increase. Trees remove pollution from the air, absorb rainfall from weather events, and provide energy savings through shade production during hot temperatures. Studies have also shown that trees can improve moods, lower stress, increase wellness, and reduce crime.¹

The absence of trees and tree coverage has been shown to have negative effects on the surrounding environment, made worse by higher amounts of paved surfaces in some areas (see Historic Impacts on Neighborhoods). A recent study found that lower income areas were more likely to have higher annual surface temperatures than higher income areas. It also explored the impacts surface temperatures and income had on public health.² Toledo did not have as strong a correlation as other cities, but still ranked in the top 10 most heat-impacted cities included in the study.

This research provides context for how the built environment can influence other factors such as public health and quality of life. Some of the oldest central city neighborhoods in Toledo have the fewest number of trees and open green spaces, which can exacerbate some of the socioeconomic and racial inequalities outlined in Historic Impacts on Neighborhoods.

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Improve Tree Canopy SUSTAIN 6

Urban forests and wooded areas provide the greatest positive impacts on wellbeing. However, a single tree planted can provide many benefits. A maple tree with a 24” caliper has the potential to remove 4,335 lbs. of CO2 from the atmosphere, absorb 25,391 gallons of rainwater, filter 28.9 lbs. of air pollution, and save 1,355 KWHs of electricity over the course of twenty years.³ However, many of these benefits are not realized until the tree has matured. City policies and guidelines for plantings and urban greening should be reviewed with this consideration in mind.

Communities across the United States, including Toledo, have started to take additional action to strengthen this natural resource. Trees Atlanta and the Greening of Detroit are two examples to highlight. However, more could be done to protect existing trees with an emphasis on trees in the public right-of-way or preserving trees on sites that are ready for commercial development. Cities like Ann Arbor, MI and Columbus, OH have policies in place that either protect existing trees or require replacement if trees are removed for development.

Trees also play a role in the reuse of vacant or undeveloped land. This is especially important because residential and vacant land account for nearly 75% of a city’s tree canopy (see Promote Recreational Opportunities or Improve Park Access for more detail).⁴ As of 2023, The City of Toledo has made a commitment to plant more than 2,000 trees in streetscapes and partnered with Metroparks on an urban reforesting project that will plant 15,000 trees using a combination a federal funding resources.⁵ The City also received $6.1 million in federal funds to plant 10,000 trees in low-income neighborhoods and enhance the urban tree canopy.⁶ This is in addition to local efforts like the Junction Neighborhood planting project.

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Improve Tree Canopy

Partnerships could also be explored between Planning Departments and other agencies to ensure additional landscaping plantings are incorporated and sustained through new development projects.

The examples provided here underscore the impact that trees can have on a community and those who call it home. A strong, vibrant neighborhood is connected to nature, not isolated from it; each new tree has an important role to play.

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Supporting Other Themes:

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1 a. Ernest Bielinis, Norimasa Takayama, et. al. The effect of winter forest bathing on psychological relaxation of young Polish adults. Urban Forestry & Urban Greening, Volume 29. January 2018. Available here. b. Simone Kuhn, Sandra Duzel, et. al. In search of features that constitute an “enriched environment” in humans: Associations between geographical properties and brain structure. Scientific Reports. April 2017. Available here. c. Omid Kardan, Peter Gozdrya, et. al. Neighborhood greenspace and health in a large urban center. Scientific Reports. July 2015. Available here. d. Tania Schusler, Leah Weiss, et. al. Examining the association between tree canopy, parks, and crime in Chicago. Landscape & Urban Planning. Vol 170. February 2018. 2 National Public Radio. 2019. As Rising Heat Bakes U.S. Cities the Poor Often Feel It Most. Available here. 3 Davey Tree. I-Tree Benefit Estimator. Energy savings based on tree proximity less than 40’ from the primary structure. Available here. Accessed 07/12/2023. 4 David J Nowak & Eric J Greenfield. US Urban Forest Statistics, Values, and Projections. Journal of Forestry. Vol 116. Issue 2. March 2018. 5 Toledo Blade. Toledo to use federal funds to grow its tree canopy. February 15, 2023. Available here. 6 City of Toledo. Toledo Awarded $6.1 Million Grant to Enhance Urban Tree Canopy. September 14, 2023. Available here.

Strategies:

The City will seek to accomplish the following action steps to Improve the Tree Canopy:

» Develop strategies to help address the urban heat island effect, especially in Toledo’s underserved neighborhoods (e.g., Junction).

» Develop policies that preserve existing trees in Toledo.

» Modify the City’s landscape requirements to consider more than just the number of plantings (e.g., tree type and benefits at maturity).

» Establish a procedure that sets aside a percentage of a project’s funding for tree replacements (e.g., landscape bond).

» Adopt a planting “best practices” guide to improve plant health.

» Collaborate with other departments (e.g., Economic Development, Lucas County Land Bank) to explore additional reuses of vacant land (e.g., neighborhood parks, trails).

SUSTAIN 7

Energy Efficient Development

Explore how buildings can be designed to reduce impacts on the environment, such as sustainable building materials, reduced energy consumption, or other specific design standards.

The built environment is responsible for a third of global energy consumption and nearly 26% of global greenhouse gas emissions. Three building materials: concrete, steel, and aluminum, also account for 23% of total emissions.¹ Efficiency has implications not only for the environment but also consumer pocketbooks, where the average U.S. household spends an estimated $5,160 per year on utilities.[^p158-2] The energy efficiency of buildings in a community can greatly impact the finances of all residences, especially low-earning households.

Communities across the U.S. are taking steps to reduce energy consumption. Cities in the Midwest have begun offering everything from financial incentives for energy efficient buildings (Cincinnati, OH), zoning incentives like additional height or area (Bloomington, IN), or other forms of assistance such as free energy audits (Indianapolis, IN). Policy or regulatory options that encourage the use of energy efficient design standards such as LEED or Energy Star can also reduce the impact of the built environment.

This plan highlights the national affordability issues impacting housing (see Addressing Housing Affordability or Promote Housing Variety). Along with being more sustainable, the most affordable home is often the one a community already has. Financial incentives to renovate, both locally and federally, have been limited. By the time an owner submits a demolition permit with the City, the structure is typically beyond the point of saving. One strategy to assist with this is tougher enforcement of building, zoning, and nuisance standards.

This would allow the city to proactively address housing maintenance before problems escalate. Fines for non-compliance could also be diverted to a housing fund to support overall affordability or offer assistance to long-standing homeowners.

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Energy Efficient Development

There are also sustainable solutions for structures that cannot be saved such as deconstruction (see Building Preservation). Deconstruction reduces the energy footprint of a building, redirects landfill waste and creates a market for material reuse. Developing legislation which incentivizes or required deconstruction could potentially reduce future demolitions, housing costs, and emissions associated with construction.

The City of Toledo has enacted and updated building material requirements since 2004. These standards include the use of high-quality construction materials like brick, stone, wood, and glass. It is less supportive of alternative materials and construction methods such as various types of metal or hybrid products. Reclaimed shipping containers have also become a popular alternative in other communities with high housing costs, and Ohio’s current building code (IBC 2021) includes provisions for their use.¹ One strategy is to allow a wider variety of building materials with a lower environmental footprint. Materials would still need to meet aesthetics and compatibility with adjacent developments, however, criteria for the acceptance of alternative, more sustainable materials could be developed.

“Provide incentives for developers to add green elements to all projects (e.g. rain gardens and roof top gardens).”

-Resident Forward Toledo Survey Response

Another way to support energy efficient development is by focusing on regional strengths in alternative energy and logistics. There were 7,282 solar-related jobs in Ohio in 2019 and nearly half of those were located within the Toledo Metro Region.² This success can be attributed to companies like First Solar and research institutions like the University of Toledo Wright Center of Photovoltaics Innovation and Commercialization. There are opportunities to support these efforts by identifying or prioritizing land for a business corridor that emphasizes green energy or logistics, including the potential for pilot projects like solar technology. Land assembly is a challenge within city limits, but there is potential to build off the regional work being done by the Northwest Ohio Innovation Consortium (see Workforce Opportunities).

Energy efficiency can also be addressed indirectly through electric vehicle charging and infrastructure. The City of Toledo passed preliminary regulations during the Forward Toledo process, but more work can be done to ensure that policies and incentives are aligned to encourage their development in the region as technology evolves. Continued support of alternative transportation, from electric vehicles to bicycles to transit, should be considered in new development.

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Energy Efficient Development

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[Source: Lucas County Land Bank]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to address Energy Efficient Development:

» Incentivize the use of energy efficiency design standards (e.g., LEED / Energy Star / passive design).

» Establish incentives and policies that encourage people to renovate instead of demolish.

» Develop deconstruction legislation to incentivize the preservation of structures and reduce waste headed to landfills (e.g., early 20th century buildings).

» Allow a wider variety of building materials for construction with a lower environmental footprint (e.g., refurbished materials).

» Identify and support a business corridor with emphasis on green energy and logistics.

» Adopt design standards for electric vehicles and infrastructure.

» Develop a housing fund to support the construction or maintenance of housing units.

[Source: Lucas County Land Bank]

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FUTURE LAND USE >>>

Mapping how Toledo will change and grow.

Future Land Use

Overview of Future Land Use Planning

Comprehensive plans often utilize future land use maps to serve as a visual representation of the long-term vision for development and the built environment. In industrial cities with established historical urban infrastructure (e.g., interconnected streets, mixed uses, transit lines), these maps prioritize redevelopment, denser urban forms, and the preservation of older structures. Effective urban land use planning requires a strategic balance between controlled growth, adaptable flexibility, and protecting valuable assets like neighborhood character and natural resources. A neighborhood-specific focus becomes crucial in achieving this balance as there is no one-size-fits-all approach.

The city’s zoning code, encompassing both the map and ordinance, functions as the primary regulatory tool for managing growth. Meanwhile, the future land use plan acts as a strategic guide for informing future zoning updates and shaping the city’s long-term development goals.

For the past century many cities kept homes, businesses, and factories apart, aiming to protect residents from noise, pollution, and safety hazards. This separation became more pronounced with the rise of automobiles and sprawling suburban development. As a result, these 20th-century development patterns diminished the older, walkable city model, where goods and services were in close proximity to residences.

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[Source: Plan Commission]

Contextual Zoning regulates the height and bulk of new buildings, their setback from the street line, and their width along the street frontage, to produce buildings that are consistent with existing neighborhood character.

Future Land Use Map

The Forward Toledo Future Land Use Map outlines a vision for the city’s land use evolution over the next 10-20 years, categorized by “Future Designations.” Recognizing the near-fully built environment and slow pace of change, the plan prioritizes continuity with modest adaptations:

» Zoning boundary adjustments: Optimizing existing zoning districts for greater efficiency and alignment with current needs.

» Flexible uses: Expanding allowable uses within districts to encourage diversified development opportunities.

» Expanded design standards: Improving design guidelines and regulations to promote a diverse range of attractive and functional built environments.

» Unique neighborhood districts: Enhancing the vitality and functionality of Toledo’s distinct areas.

» Development form and scale: Providing recommendations for the preferred character and size of new development within each district.

» Housing equity: Reducing housing costs and increasing housing options for all residents while supporting economic growth.

For many areas, maintaining and enhancing the existing character aligns with the desired future vision. In such cases, the Future Land Use Map functions as a roadmap for preservation and reinforcement of existing neighborhood qualities. In other areas, however, the plan recommends modest adjustments to the current land uses and built form. The individual land use category pages in this section provide an overview of some of those changes. These adaptations will be facilitated through revised zoning regulations and targeted development initiatives (e.g., zone changes).

The Future Land Use Map will be used to guide development decisions by neighborhood context rather than specific land use categories. This means that the form of what is proposed and how well it fits within adjacent developments plays a role in overall decision-making.

The Future Land Use categories are based on an analysis of existing land uses in the context of the proposed new land use categories. The Future Land Use Map was determined by additional criteria, such as the prioritized goals within the plan, current zoning, neighborhood plans, surrounding context, etc. [See chart below.]

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Future Land Use Map

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Existing Land Use

Smaller/Less Intensity — Larger/More Intensity

Existing Zoning District

Process of Determining Neighborhood Context

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Neighborhood Context

Future Land Use Context

Future Land Use Map

Beyond the previously mentioned criteria, the development of these Future Designation boundaries incorporated several additional factors. These included:

» The existing land use and zoning patterns within the designated areas. » Current residential density patterns, such as the average number of units per structure. » Prevailing sizes and characteristics of existing commercial and mixed-use buildings. » Commercial and activity centers identified by local neighborhood plans. » Proximity to key transit corridors. » Presence and potential expansion of Walkable Oriented Development areas. » Alignment with established city planning best practices.

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Toledo Area Regional Transit Authority (TARTA) corridors were factored into focusing a critical mass of housing and commercial activity. The TARTA NEXT plan, completed by TARTA in 2022, was a comprehensive operational analysis in understanding how transit could work better to serve the community and residents. The study resulted in expanding services and enhancing route quality and ridership.

The future land use designations support this effort along with Forward Toledo plan goals by prioritizing additional residential housing within walking or biking distance of mixed-use neighborhood centers and corridors. These areas also serve as ideal transit hubs to support the network.

The future land use map recommends increasing housing density, particularly medium-density and mixed-use development, along most transit corridors. This strategic approach aligns land use and transportation planning while acknowledging Toledo’s population decline. With a smaller population, supporting all of the existing commercial corridors is no longer feasible. Therefore, focusing investment and development along key transit corridors maximizes the potential for vibrant communities and thriving local economies.

It also prioritizes mixed-use areas near neighborhoods with more housing and population within walking or biking distance to support it. This idea balances aspirational planning with market realities. While the land use plan cannot dictate regional and city-wide economic forces, it can strategically create opportunities for readily accessible commercial activities near residential areas.

Future Land Use Map ˃˃˃˃˃

The Forward Toledo Plan consists of 12 Future Designations:

Low-Density Residential (LR)

Neighborhood Residential (NR)

Neighborhood Mixed-Use (NM)

General Commercial (GC)

Downtown (DT)

Low-impact Industrial (LI)

High-impact Industrial (HI)

Park Land (PL)

Public Space (PS)

Institutional (IN)

Utilities (UT)

Water Belt (WB)

The individual future land use pages provide a substantial amount of information such as ideal land uses, design considerations for buildings, and the locations where the district is most appropriate. The example on page 170 lists how best to read and interpret these pages. It is important to emphasize that these categories, while similar to zoning, do not change existing regulations. Follow up requests such as zone changes or development reviews will be required.

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Note: Future Land Use categories do not change underlying zoning. Follow up requests such as zone changes or development reviews will be required.

Forward Toledo

Future Land Use

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Future Land Use Designations

• Low Density Residential
• Neighborhood Residential
• Neighborhood Mixed-Use
• General Commercial
• Downtown
• Low Impact Industrial
• High Impact Industrial
• Institutional
• Public Space
• Park Land
• Utilities
• Water Belt

Produced by the Toledo-Lucas County Plan Commissions - Spring 2024

COMPREHENSIVE LAND USE PLAN 165

Future Land Use Map

Less Intensity ───────────> More Intensity

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Water Belt » Waterfront property » Public access and views » Mixed-use, comm./residential » Recreational, entertainment, dining, etc.

Park Land » City Parks » Metroparks » Multi-purpose Trails

Public Space » Libraries » Community Centers » Fire Stations » Post Offices

Institutional » University Campuses » Hospitals » Museums » Zoo » High School Campuses

Public O --------------------------- O Institutional

Less Intensity ───────────>

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Low-Density Residential » Single Dwelling Houses » 2, 3, 4-units where compatible » Large Lots » Suburban form

Neighborhood Residential » 1-2-unit dwellings » 3, 4, 6-units on Major Streets » Commercial/Retail small » Traditional Neighborhood Form

Residential O --------------------------- O

Future Land Use Map

Larger/More Intensity Larger/More Intensity

Neighborhood Mixed-Use

⬚ figure » Urban Village » High Density Residential » Walkable » Commercial/Retail

General Comercial

⬚ figure » Shopping Centers » Large Residential Apartments » Office Parks » Auto-oriented

Downtown

⬚ figure » High-Rise Buildings » Arenas/Centers » Zero Setback » High-Density Residential

Low-Impact Industrial

⬚ figure » Advanced Manufacturing & Production, small » Low-Intensity mfg. » High-tech R&D » Shipping & Logistics

High-Impact Industrial

⬚ figure » Large Factories » Heavy Manufacturing & Production » Processing Facilities » Equipment Storage

Utilities

⬚ figure » Gas » Water Treatment » Electric » Sanitation » Railroads

Mixed Use O - - - - - - O Commercial O - - - - - - O Industrial O - - - - - O

COMPREHENSIVE LAND USE PLAN 167

Future Land Use Designations

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Low-Density Residential (LR) Mostly single-family homes on larger lots. May also include low-impact uses such as schools and churches, as well two-, three-, and four-family homes where compatible with the surrounding neighborhood and along major roads and transportation corridors. Automobile-oriented due to larger lot sizes and lower density.

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Neighborhood Residential (NR) Mostly single-family homes on smaller lots. Includes two-unit homes with an emphasis on maintaining neighborhood scale. Three-, four-, and multi-family houses may also be included along major roads and transportation corridors. Accommodates neighborhood uses such as schools and churches. May include small-scale commercial/office uses with minimum daily traffic demand at major intersections or when compatible with adjacent uses. This designation’s smaller lot sizes allow for a mix of pedestrian, bicycle, bus, and automobile-based transportation.

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General Commercial (GC) Predominantly large-scale or automobile-oriented commercial uses such as shopping centers, drive-thru establishments, big-box retail, and gas stations. May include office and industrial uses that do not generate excess traffic or other negative impacts. Multi-family residential development may be located within these areas.

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Neighborhood Mixed-Use (NM) A mix of multi-family uses and small-and medium-scale commercial operations such as restaurants, specialized retail, small offices, and galleries. Industrial uses that are well-designed and do not generate excess traffic or other negative impacts are compatible. Multi-family uses may either be stand-alone, or located above commercial and office uses. Parking in these areas should be shared and buildings should be located near each other. Mixed-uses and dense buildings allow for a mix of pedestrian, bicycle, bus, and automobile-based transportation.

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Downtown (DT) Downtown areas accommodate a broad range of uses to reflect Downtown’s role as a commercial, governmental, cultural, and entertainment center. Downtown areas have high-intensity uses with high building coverage and large buildings placed close together. Mixed-use and pedestrian-oriented developments discourage the use of automobiles within the Downtown designation.

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Low-impact Industrial (LI) Predominantly composed of industrial uses that generate minimal excessive noise, odor, outdoor storage, or other nuisances. Office, commercial, and educational uses which serve the industrial uses may also be included. Auto-centric uses such as vehicle sales and repair are compatible along major roads. These areas should encourage the growth of high-tech and specialized manufacturing.

Future Land Use Designations

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High-impact Industrial (HI) Areas dedicated to industrial uses that may generate excessive noise, odor, storage demands, or other nuisances that are not generally compatible near residential and commercial uses, as well as industrial uses which require large amounts of land. Typically, these areas are supported by strong transportation access and other necessary infrastructure.

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Park Land (PL) Park Land areas are public and quasi-public parks, trails, and green space.

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Public Space (PS) Public Space uses are neighborhood-scale Public and quasi-public community-focused uses such as emergency responder stations, libraries, specialty venues, community centers, and smaller scale regional attractions.

Special Designations: these districts apply to more specific land uses than the other designations.

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Institutional (IN) The Institutional land use designation preserves regional and local anchors which require large campus areas, such as high schools, colleges, hospitals, civic buildings, the Toledo Museum of Art, and the Toledo Zoo.

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Utilities (UT) The Utilities land use designation preserves key thoroughfares for the connectivity of infrastructure such as, rail lines, electrical lines, transformers, water treatment, and distribution.

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Water Belt (WB) The Water Belt land use designation recognizes, promotes, and optimizes a mix of residential, commercial, industrial, and public land uses along major bodies of water, while emphasizing the connection through shared public access to the water.

Reading Land Use Designation Pages

General Commercial (GC)

Intent

The General Commercial Land-Use designation provides space for auto-oriented and large-scale commercial operations which may also cater to regional demand.

Physical Characteristics

• Parking should be shared between large commercial anchors and smaller commercial users with adequate landscaping and open space.
• Industrial uses should be designed to appear as a commercial structure from the exterior.
• Commercial structures nearest to residential or medium- and high-density land uses should prioritize pedestrian features over auto-oriented development.
• Internal pedestrian flow through parking areas and interconnected sidewalks.
• Unified, comprehensive design to the entire site.
• Incorporation of public spaces, artwork, open seating.
• Traffic calming measures for increased safety.

Land Uses

Auto-oriented commercial uses such as big box retail, drive-thru restaurants, shopping centers, and strip center shopping malls. Industrial uses which do not have negative impacts on neighbors such as pollution or high traffic (e.g., breweries, high-tech production & manufacturing). Commercial and medical offices. Multiple-family residential developments that compliment commercial activity within these areas.

Geographic Characteristics

Utilizes areas heavily serviced by major streets, highways, and interstate system. Located along major roadways near regional attractions. Less density than Neighborhood Mixed-Use. Offices & Multi-dwelling uses are most appropriate as a land use buffer within General Commercial Areas when abutting residential land uses.

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A. Future Land Use Designation Title and Abbreviation. B. Intent - The definition and description of each future land use designation. C. Land Uses - Describes the type of land uses allowed or supported in the future land use category, and the appropriate surrounding land uses and impact from a proposed site. D. Physical Characteristics - Describes the lot size and setbacks, building height, density of the area, and connectivity to the site. E. Geographic Characteristics - Describes the type of lots and street types, the form of surrounding areas, and the proximity to surrounding areas. F. Figures depicting examples of typical land uses, characterstics of street networks, and physical characteristics of building height/size.

Future Land Use Designations

Low Density Residential (LR)

Intent

The intent of the Low-Density Residential land use designation is to provide space for contemporary auto-oriented suburban style neighborhoods in the city.

Physical Characteristics

» Large lots providing private outdoor space such as large rear and front lawns. » Building heights are primarily limited to two stories. » Density should be highest near busy corridors. » Pedestrian connectivity to neighborhood amenities such as parks and transit stops. » New development and subdivisions within LR should be grid-like with ample connectivity. » Encourage similar design, height, setbacks on garages and exterior materials

Land Uses

» Primarily single-dwelling homes on individual lots and duplexes when designed compatibly with neighborhood character. » Attached or connected homes with shared open space. » Three-, and Four- dwelling homes are appropriate where it does not impact neighborhood character and along major roads and transportation corridors. » Low-impact institutional, public, and commercial uses such as churches, schools, parks and day-cares are also appropriate and should be located along higher traffic corridors.

Geographic Characteristics

» Applicable in neighborhoods with larger lots and fewer interconnected streets. » Infill of existing neighborhoods within this typology is encouraged over creation of new Suburban Residential Areas.

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Figure: Example of typical land uses.

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Figure: Example of geographic characteristics in street network.

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Figure: Example of physical characteristics in building size/height.

Future Land Use Designations

Neighborhood Residential (NR)

Intent

The Neighborhood Residential land use designation provides space for low- and medium-density housing demands in the city while making best use of neighborhoods with constraints such as narrow lots. These areas are predominantly pedestrian-oriented.

Physical Characteristics

» Built to encourage pedestrian and bicycle connectivity and safety. » Residential uses provide some private outdoor space such as lawns, porches, and patios. » Higher unit count homes designed to match visual scale and character of nearby single-family houses. » Non-residential uses designed to minimize off-street parking facility size. » Setback and lot size requirements should be minimized to encourage redevelopment. » Street networks tend to follow a coherent grid and provide connectivity throughout the neighborhood. » Shared parking areas where possible.

Land Uses

» The majority of buildings are single- and two- unit houses, including attached homes. » Three-, four-, and multi-family homes are compatible in this area when located near and along busier corridors where lot size and building height are most appropriate. » Low-impact institutional, public, and commercial uses such as churches, schools, parks and day-cares are also appropriate in this area and should be encouraged along busier corridors. » Commercial uses that not obtrusive to the neighborhood and do not generate high parking demand may be acceptable near intersections. » Parks and other public amenities.

Geographic Characteristics

» Commercial uses prioritized near intersections and higher traffic roads. » Applicable to the majority of predominantly single-family and duplex neighborhoods in the city. » Targets preservation and redevelopment of medium-density neighborhoods. » Commercial demands supported or met by nearby Neighborhood Mixed-Use areas.

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Figure: (left to right) Duplex, Multifamily, and Single-Family Homes of compatible design in Englewood.

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Figure: An elementary school located in the Burroughs neighborhood.

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Figure: Example of the Ottawa Neighborhood matching Neighborhood Residential characteristics. Multi-family is located along major roads, with a mix of single- and two- family homes on the side streets.

Neighborhood Mixed-Use (NM)

Intent

The Neighborhood Mixed-Use land use designation preserves and promotes pedestrian-oriented commercial and mixed-use areas. These are a core component of neighborhoods and provide the highest density of commercial and housing opportunities.

Physical Characteristics

» Development has minimal setbacks and cohesive architectural elements. » Pedestrian connectivity should be prioritized. » Individual parking lots for single commercial uses are discouraged. » Parking areas should be consolidated serving multiple users. » Industrial uses must blend in with surrounding commercial and residential uses. » Vehicular traffic calming methods should be implemented. » Greenspace or a consolidated public amenity should be implemented when feasible. » Public amenities such as benches, shade structures, and art provided along the right-of-way. » May include residential uses over three-stories along busier corridors.

Physical Characteristics (cont)

» Loading docks and drive-thru areas should be located along alleys and not along primary frontages.

Land Uses

» Pedestrian-oriented commercial uses. » Mixed-Use residential & commercial. » Middle- & High-density residential such as quadplexes and apartment buildings. » Institutional and Public uses including parks. » Offices and minimally obtrusive industrial uses. » Auto-oriented uses such as car-washes and gas stations are not compatible. » Commercial only uses and stand-alone buildings are discouraged.

Geographic Characteristics

» Adjacent to residential uses and serve as the mixed-use core of neighborhoods. » Fits in historic neighborhoods as well as areas targeted for commercial and residential growth. » Speed limits below 35 mph and streets with 4-lanes or less are encouraged.

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Figure: Neighborhood Centers promotes a variety of uses forming a dense walkable neighborhood core. Above is an example along Sylvania Avenue with neighborhood residential complimenting the mixture of land uses.

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Figure: A historic mixed-use building with an art gallery, office, and apartments exists in an urban context with limited parking and high building coverage.

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Figure: Contemporary Redevelopment utilizes mixed-use & minimal setbacks to build density along Secor Road and Dorr Street.

Future Land Use Designations »»»»»

General Commercial (GC)

Intent

The General Commercial land use designation provides space for auto-oriented and large-scale commercial operations which may also cater to regional demand.

Physical Characteristics

• Parking should be shared between large commercial anchors and smaller commercial users with adequate landscaping and open space.
• Industrial uses should be designed to appear as a commercial structure from the exterior.
• Commercial structures nearest to residential or medium- and high-density land uses should prioritize pedestrian features over auto-oriented development.
• Internal pedestrian flow through parking areas and interconnected sidewalks.
• Unified, comprehensive design to the entire site.
• Incorporation of public spaces, artwork, open seating.
• Traffic calming measures for increased safety.

Land Uses

• Auto-oriented commercial uses such as big box retail, drive-thru restaurants, shopping centers, and strip center shopping malls.
• Industrial uses which do not have negative impacts on neighbors such as pollution or high traffic (e.g., breweries, high-tech production & manufacturing).
• Commercial and medical offices.
• Multiple-family residential developments that compliment commercial activity within these areas.

Geographic Characteristics

• Utilizes areas heavily serviced by major streets, highways, and interstate system.
• Located along major roadways near regional attractions.
• Less density than Neighborhood Mixed-Use.
• Offices & Multi-dwelling uses are most appropriate as a land use buffer within General Commercial Areas when abutting residential land uses.

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Future Land Use Designations

Downtown District (DT)

Intent The Downtown land use designation accommodates a broad range of uses to reflect downtown’s role as a commercial, governmental, cultural, and entertainment center. Land uses are intended to be more intense with high building coverage, large buildings, and buildings placed close together. Mixed-use and pedestrian-oriented development are key elements of this designation.

Physical Characteristics » Pedestrian-oriented design with integrated public space along streetscapes. » Buildings occupy the entirety of parcels with minimal to no setbacks. » Parking for individual commercial uses are discouraged and should be provided by consolidated structures serving multiple users. » Vehicular traffic calming and right-of-way improvements for pedestrian traffic. » Reuse and rehabilitation of existing building stock should be prioritized in redevelopment. » Targeted infill areas for redevelopment to create continuous

Physical Characteristics (cont) streetscapes. » Encourage public gathering spaces with benches, low walls, street-level activity » Emphasis on multi-modal transportation and transit-oriented development.

Land Uses » Mixture of High-Intensity and High Density Residential & Commercial Uses. » Civic and Public Uses, as well as Regional Attractions. » Industrial Uses are discouraged in Downtown. » Large lot single-family residential, auto-oriented uses, low density-commercial, and warehousing should not be located in downtown.

Geographic Characteristics » Downtown Commercial Land Use Designation is reserved for the area within and around the central business district of the City.

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Figure: Consolidated parking structures provide parking for many uses.

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Figure: Public space is integrated into the streetscape outside of Huntington Center.

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Figure: A mix of coffee shops, offices, restaurants, and banks occupy a single building in Downtown.

Future Land Use Designations

Low-Impact Industrial (LI)

Intent

The Low-Impact Industrial land use designation provides space for industrial uses which do not noticeably affect the character of the neighborhood. These uses are typically smaller-scale facilities, higher technology, or research and development based facilities which often cater to the demand of High Impact Industrial users.

Physical Characteristics

» Building height and design compatible to surrounding uses. » Loading areas screened from view of right-of-way. » Screened when adjacent to non-industrial users. » Potential for reuse of commercial buildings abutting residential uses. » Buildings with visual interest and compatible with adjacent development.

Land Uses

» Industrial land uses that cause minimal negative impact to neighboring properties (e.g., noise, odor, or outdoor storage). » Limited exposure of nuisance conditions to nearby residential areas (e.g., air-quality, noise and pedestrian/bicyclist safety) » Office facilities, commercial producers, and educational uses which serve industrial uses. » Auto-centric uses such as vehicle storage, sales and repair. » Public works and utilities. » Logistic and shipping-oriented uses such as fleet storage.

Geographic Characteristics

» Proximity to high-impact industrial uses. » Serves as a buffer between high-traffic roads such as interstates and residential uses. » Least intense activity located closest to adjacent uses. » Access to transit lines, highways, and railways should be considered.

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Figure: Low-Impact Industrial uses such as HVAC suppliers act as a land use buffer between I-75 and Neighborhood Residential in North Toledo.

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Figure: Commercial Uses and Low-Impact Industrial Uses coexist without conflict on Adams Street.

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Figure: Solar fields and other utilities can be used to establish low-impact buffers between higher impact uses and residential areas.

Future Land Use Designations

High-Impact Industrial (HI)

Intent

The High-Impact Industrial Land Use designation maintains and, where appropriate, expands large-scale industrial operations. This designation clearly delineates space in the city for industries that may cause negative impacts when located near other non-industrial users. Uses typically require good transportation access and other infrastructure.

Physical Characteristics

» Building heights sensitive to surrounding uses. » Loading areas screened from view of right-of-way. » Transit stops integrated into large-scale developments. » Screened when adjacent to non-industrial users. » Variation in front facade building design when visible from right-of-way.

Land Uses

» Industrial land uses that may cause negative impacts on neighbors, such as high-traffic demand or pollution. » Industrial uses which require large amounts of land. » Manufacturing, warehousing, and distribution. » Commercial uses which are accessory to and primarily serve industrial uses. » Public works and utilities. » Logistic- and shipping-centered uses such as fleet storage. » Residential uses are not compatible.

Geographic Characteristics

» Proximity to major roads which are appropriately weight rated for heavy-truck use. » Located near railways, major roadways, federal highways, and adequate infrastructure. » Avoid expansion into or near residential areas. » Reuse of vacant low-density commercial land may be appropriate when not abutting residential uses.

⬚ figure Figure: Direct access to highways and rail benefit industrial users and minimize traffic conflicts.

⬚ figure Figure: A distribution center located at the former Southwyck Mall shows High-Impact Industrial growth without encroaching into neighborhoods

⬚ figure Figure: Large industrial buildings can utilize wider setbacks from property lines to minimize impact on surrounding land uses.

Future Land Use Designations

Park Land (PL)

Intent

The Park Land land use designation provides space for parks, gathering spaces, recreation areas, open spaces, and nature conservation areas for public use. Land uses within this designation provide public benefit and enjoyment without payment, membership, or other form of exclusivity. This use designation is separate from other public spaces in acknowledgment of the vital role parks play in quality of life for Toledo’s residents. Preservation of existing parks is a key priority of this land use designation.

Physical Characteristics

• Varies in scale depending on the context of the surrounding area, and should be sensitive to nearby land uses in placement of park amenities.
• Pedestrian connectivity to neighboring residential, commercial, and public areas.

Land Uses

• Publicly accessible parks, open space, green space, and recreation areas.
• Other amenities which are accessory to public parks including but not limited to sports facilities, botanical gardens, concessions, and rental spaces.

Geographic Characteristics

• Preserved where existing parks are located.
• Land utilized to expand connectivity to parks through vacant and underutilized lots.
• Compliments nearby residential and commercial uses.
• Areas may act as a buffer between industrial uses and other uses.

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Figure: Neighborhood parks such as Joe E. Brown Park provide access to recreation for surrounding residents.

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Figure: Cemeteries like Woodlawn Cemetery provide access to natural features in center-City neighborhoods.

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Figure: Higher maintenance amenities such as Ottawa Park Golf Course may require premium fees to utilize, however benefits of Ottawa parks scenery and other recreation activities can be enjoyed by any member of the public.

Future Land Use Designations

Public Space (PS)

Intent

The Public Space land use designation provides spaces for civic, public, and quasi-public uses. Public Space uses are community-focused uses such as police and fire stations, libraries, community centers, and other government owned civic buildings. Uses within this district provide public good while minimizing development impacts on residential areas. Smaller civic uses such as neighborhood parks and elementary schools are encompassed within other land-use designations.

Physical Characteristics

» Design should be sensitive to neighbor context and land use attributes. » Encourage reuse of historic structures with opportunities for expansions and renovations. » Modern architecture and design for new buildings/additions should complement existing structures. » Pedestrian connectivity to neighboring residential, commercial, and public areas. » Parking should be consolidated internal to the site when possible. » Large scale public uses should integrate pedestrian connectivity through sites.

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Figure: The Mott Branch Library is adjacent to a school, park, and public pool, which provide a network of Public Space at Smith Park on Dorr Street.

Land Uses

» Public libraries. » Community centers. » Police & fire stations. » Civic Center Mall & government buildings. » City and County owned property.

Geographic Characteristics

» These areas should be preserved and expanded where public uses exist. » Expansion should be allowed for the benefit of the public.

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Figure: The West Toledo Branch Library opened in 1930 on Sylvania Avenue in the Library Village neighborhood. Source: Lucas County Land Bank.

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Figure: Fire Station No. 3 at Bush & Erie Streets, originally opened in 1927 in the Vistula Neighborhood, was remodeled and expanded on the historic structure in 2014.

Future Land Use Designations

Institutional (IN)

Intent

The Institutional land use designation preserves regional and local anchors which require large campus areas, such as high schools, colleges, hospitals, museums and cultural institutions. Institutional land uses are larger-scale and community-focused such as hospitals, high schools and university campuses, and cultural regional attractions.

Physical Characteristics

» Campus-like setting. » Uses tend to be larger and each portion of the design must be sensitive to neighboring land use attributes. » Common building design, materials and signage for institutional uses. » Pedestrian connectivity to neighboring residential, commercial, and public areas. » Parking should be consolidated when possible. » Large-scale uses should integrate pedestrian connectivity.

Land Uses

» Large high schools, universities, and educational campuses. » Regional & cultural attractions (e.g., Toledo Zoo, Toledo Museum of Art). » Hospitals and medical campuses.

Geographic Characteristics

» These areas should be preserved where existing institutional exist. » Expansion should be sensitive to the well-being of neighbors and surrounding traffic patterns. » Larger, regional attractions should have access off of one or more major roads.

⬚ figure » Figure: Toledo Hospital on Monroe Street.

⬚ figure » Figure: A detailed landscape buffer divides the Toledo Zoo from residential uses along Amherst Drive and ensures entrances are accessible from major roads as opposed to residential streets.

⬚ figure » Figure: The University and its surrounding areas require special consideration in their land use and growth.

Utilities (UT)

Intent

The Utilities land use designation preserves key thoroughfares for the connectivity of infrastructure such as, rail lines, electrical lines, transformers, water treatment, and distribution. Existing utilities providing public benefit to the city such as water and sewage treatment, pump stations, electrical service stations, gas pipelines and other utilities within these designations should be preserved and expanded where appropriate.

Physical Characteristics

» Restricted access controls. » Enhanced security measures for public safety. » Intensity and scale are compatible with surrounding uses. » Reduce negative secondary effects with landscape buffers and/or sound walls installed. » Fencing and gates with barb-wire, razor wire, etc. are discouraged along the right-of-way. » Open storage and processing areas shall be screened from public view.

Land Uses

» Public/private utility infrastructure. » Water treatment plant and pump stations. » Electrical substations. » Solar fields and wind farms. » Railroads and freight terminals.

Geographic Characteristics

» These areas should be preserved and expanded where existing utilities exist. » Expansion should be sensitive to the well-being of neighbors and surrounding traffic patterns.

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Figure: The Collins Park Water Treatment Plant on York Street.

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Figure: A pumping station located off Airport Highway.

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Figure: A security fence surrounds the Waste Water Treatment Plant along Summit Street.

Future Land Use Designations

Water Belt (WB)

Intent

The Water Belt land use designation recognizes, promotes, and optimizes a mix of residential, commercial, industrial, and public land uses along major bodies of water, while emphasizing the developments connection to the water through shared public access.

Physical Characteristics

» Public access along water ways such as riverfront patios, trails, and preservation of vistas at intersections and other points of interest. » Building and site design which treats the water-facing side as the front of the building as well as the street side. » Parking located away from the water. » Encourage the incorporation of decks, open spaces, and docks for new construction. » Encourage launch sites for water recreation purposes. » Limit building heights in some areas to preserve river view.

Land Uses

» Residential and commercial uses which integrate, and benefit from waterfront access. » Parks, open space, and other recreational amenities. » High Density Residential uses. » Industrial uses which require water access may be appropriate when sensitive to scale and design of surrounding land uses, as well as context along the waterfront. » Uses which cater explicitly to automobiles such as drive-thru restaurants and gas stations are discouraged. » Retain natural habitats and riparian buffers.

Geographic Characteristics

» Adjacent or near the Maume River, Lake Erie, and other major bodies of water. » Uses should be sensitive and compatible with surrounding land use designations.

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Implementation

How do we use this document?

Steady, incremental progress towards the Plan’s goals and strategies is essential to see the collective future vision of Toledo become reality. Therefore, the plan is designed to ensure that implementation occurs on a daily basis for the goals and strategies. The review of new developments and land uses will play a significant role in implementing the Plan, shaping the future of Toledo one project at a time.

Many goals and strategies will require partnerships to achieve success. The broadness of goals was intentional to ensure that potential partners could easily see how their existing efforts compliment Forward Toledo goals. The broadness of the goals also allows a greater number of possibilities for how they could be implemented beyond the strategies listed in the Plan. In other words, additional strategies may be identified after the Plan is adopted to help achieve the related goals.

The larger goals in the Plan will require partnerships along with financial support to achieve success. Identifying funding sources beyond traditional capital budget improvements will also aid in the success of larger goals (e.g., state or federal grants).

The table in this section outlines all of the goals and strategies in the Plan and provides an initial roadmap for implementation. Every strategy includes 1) related goals, 2) potential partners, and 3) the committee & public input priority levels for that strategy.

Related goals indicate how many goals a particular strategy can help implement. A strategy that shows up in multiple goals has a greater impact on the overall implementation of the plan.

The potential partners identified in the table are a starting point meant to illustrate possible connections. Forward Toledo is open to partnerships and collaborations across sectors to assist with implementation.

The priority levels columns rank how the Forward Toledo committees and the public prioritized each strategy. This feedback is the result of polling, surveys, and public engagement. It is designed to showcase the level of input that was received and how it helped to shape this planning document. The low, medium, and high levels are based on the total number of responses received. A low rated response is ranked relative to how many votes it received compared to other goals or strategies. A strategy that is ranked high by both the committees and the public will be a factor when determining what goals to prioritize for implementation.

“Cities have the capability of providing something for everybody, only because, and only when, they are created by everybody.” -Jane Jacobs

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COMPREHENSIVE LAND USE PLAN 185

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| Strategy | Related Goals | Potential Partners | Priority (Committee | Public) | | :--- | :--- | :--- | :--- | | Expand mobility options that connect people to regional destinations (e.g., bicycling, rideshare, public transit). | Workforce Opportunities (Place), Support Public Transit (Move), Reduce Pollution (Sustain) | Engineering (TOL), Traffic Management (TOL), TARTA | Moderate | High | | Expand the role of accessibility in the review of new projects to support underrepresented populations (e.g., seniors, individuals with disabilities). | Inclusive Communities (Place), Accessibility Opportunities (Move) | The Ability Center of Greater Toledo, Diversity, Equity, and Inclusion (TOL) | Moderate | High | | Explore “quick permit” zones with an emphasis on underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones). | Support Creative Economy (Play), Improve Decision-Making (Build), Historical Impacts on Neighborhoods (Build) | Building Inspection (TOL), City Council, Economic Development (TOL), Mayor’s Office | Low | High | | Explore efforts to open independent grocery stores and prioritize in areas where vehicle ownership is low. | Strengthen Neighborhoods (Place), Historical Impact on Neighborhoods (Build), Healthy Food Access (Sustain) | Economic Development (TOL), Neighborhoods (TOL) | High | High | | Explore partnerships that create more community gardens and locally grown food (e.g., urban agriculture). | Healthy Food Access (Sustain) | Neighborhood Groups, Toledo Grows | High | High | | Explore ways to expedite minor development reviews for industrial developments. | Logistics Hub (Move) | Economic Development (TOL) | N/A | N/A |

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| Strategy | Related Goals | Potential Partners | Priority (Committee | Public) | | :--- | :--- | :--- | :--- | | Promote larger ideas and projects such as a larger trail that connects local businesses, neighborhoods, public art, and people (e.g. Indianapolis Cultural Trail) or direct shoreline access along Lake Erie (e.g., Water Belt). | Highlight Regional Tourism (Play), Funding Big Ideas (Place), Create Unique Places (Build), Water Belt (Sustain), Promote Recreational Opportunities (Play) | City Council, Engineering (TOL), Mayor’s Office, Traffic Management (TOL), The Arts Commission of Greater Toledo | High | High | | Promote the importance of greenspace in neighborhoods and expand availability (e.g. impact on mental health, crime reductions, and overall well-being). | Encourage Social Opportunities (Play), Promote Native Plants (Sustain), Park Access (Play), Walkable Neighborhoods (Move) | City Council, Mayor’s Office, Neighborhood Groups, Parks & Youth Services (TOL) | High | High | | Provide incentives for developers to install green stormwater infrastructure (e.g., rain gardens). | Reduce Pollution (Sustain) | City Council, Engineering (TOL), Environmental Services (TOL), Local Architects / Engineers | High | High | | Reduce reliance on cars by establishing priority areas in the City that support walking for local trips. | Reduce Pollution (Sustain), Walkable Neighborhoods (Move) | City Council, Engineering (TOL), Mayor’s Office, Neighborhood Groups | Moderate | High | | Reduce the amount of pavement and buildings that can cover a site and require more green space. | Reduce Pollution (Sustain), Preserve Open Space (Sustain) | | Moderate | High | | Reduce vacant storefronts by completing a land use analysis with actionable strategies based on individual neighborhood needs. | Business Creation (Place), Healthy Food Access (Sustain), Strengthen Neighborhoods (Place), Workforce Opportunities (Place), Historical Impacts on Neighborhoods (Build) | City Council, Economic Development (TOL), Mayor’s Office | High | High |

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COMPREHENSIVE LAND USE PLAN 199

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Appendix ❯❯❯❯❯

Appendices

Appendix A: Neighborhoods Map

Appendix B: Citations & Sources

Appendix C: Data Dashboard

Appendix D: Leadership Toledo Summary of Survey Results

Appendix

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Appendix A: Neighborhoods Map

COMPREHENSIVE LAND USE PLAN 203

Appendix

Appendix B: Citations & Sources

Build 1 - Promote Housing Variety

1. City of Toledo Building Inspection Department. 2022. Building Permit Data. Demolitions 1975 – 2021. New Builds 2016-2021.
2. National Association of Home Builders. 2023. New and Existing Single Family Home Prices, U.S. Available at https://www.nahb.org/-/media/NAHB/news-and-economics/docs/housing-economics/sales/median-prices.pdf.
3. City of Toledo. 2021. A Guiding Vision & 10-Year Action Plan for Housing. Available at https://cdn.toledo.oh.gov/uploads/documents/Neighborhoods/CityOfTol_Housing_FINAL_PGS_ScreenQuality_small_Appendices.pdf.

Build 2 - Historical Impacts on Neighborhoods

1. City of Toledo Building Inspection Department. 2022. Building Permit Data. Demolitions 1975 – 2021. New Builds 2016-2021.
2. Lucas County Auditor, 2020. AREIS Tax Data 2012-2020. Available at https://icare.co.lucas.oh.us/LucasCare/search/commonsearch.aspx?mode=address.
3. Toledo-Lucas County Plan Commissions. 2022. Major New Construction 2004-2022.
4. Detroit Planning and Development Department, 2020. Mix Tape Zoning. Available at https://detroitmi.gov/departments/planning-and-development-department/design-and-development-innovation/zoning-innovation/mix-tape-zoning.

Build 3 - Improve Decision-Making

1. City of Toledo Building Inspection Department. 2022. Building Permit Data. Demolitions 1975 – 2021. New Builds 2016-2021.
2. Lucas County Auditor, 2020. AREIS Tax Data 2012-2020. Available at https://icare.co.lucas.oh.us/LucasCare/search/commonsearch.aspx?mode=address.
3. Toledo-Lucas County Plan Commissions. 2022. Major New Construction 2004-2022.
4. Detroit Planning and Development Department, 2020. Mix Tape Zoning. Available at https://detroitmi.gov/departments/planning-and-development-department/design-and-development-innovation/zoning-innovation/mix-tape-zoning.

Build 4 - Quality Design

1. a. Allik, M.; Kearns, A. “There goes the fear”: Feelings of safety at home and in the neighborhood: The role of personal, social, and service factors. J. Community Psychol. 2017, 45, 543–563; b. Wilson-Doenges, G. An exploration of sense of community and fear of crime in gated communities. Environ. Behav. 2020, 32, 597–611.; Erli Zeng, Yu Dong, Li Yan, Alin Lin, Perceived Safety in the Neighborhood: Exploring the Role of Built Environment, Social Factors, Physical. c. Activity and Multiple Pathways of Influence. Buildings. 2023. Available at https://www.mdpi.com/2075-5309/13/1/2.
2. Ailing Jin. 2021. Storefront Transparency Evaluation in Commercial Areas Using Google Street View and Deep Learning. Thesis work for Masters of Art in Geography at Birmingham University State University.
3. a. Jackie Gutierrez-Jones. 2019. Millennial Trend Report: What do Millennials want? Livability.com. Available at https://livability.com/wp-content/uploads/2019/01/Liva bili ty-Millennial-Trend-Report.pdf. b. Richard Florida. 2019. Young People’s Love of Cities Isn’t a Passing Fad. Available at https://www.bloomberg.com/news/articles/2019-05-28/u-s-millennials-really-do-prefer-cities.

Build 5 - Create Unique Places

1. Glass City Riverwall. Press Release. October 20, 2022. Available at https://www.glasscityriverwall.org/about-the-mural.
2. Project for Public Spaces, 2021. Flyover Park: Empowering the Next Generation of City Builders in Calgary. Available at https://www.pps.org/article/flyover-park-empowering-the-next-generation-of-city-builders-in-calgary.

Build 6 - Building Preservation

1. City of Toledo, 2023. Toledo Municipal Code. Available at https://codelibrary.amlegal.com/.
2. Lucas County Auditor, 2020. Land Value. Available at https://icare.co.lucas.oh.us/LucasCare/search/commonsearch.aspx?mode=address.
3. Lucas County Land Bank. 2021 Toledo Survey. Available at https://assets.lucascountylandbank.org/uploads/documents/2021-Toledo-Survey-Booklet-FINAL_web.pdf
4. City of Toledo, 2023. Rooftops Repair Program. Available at https://toledo.oh.gov/residents/homeowners/rooftops-program.
5. Delta Institute, 2018. Deconstruction & Building Material Reuse: A tool For Local Governments & Economic Development Practitioners.

Appendix B: Citations & Sources

Move 1 - Increase Connectivity

1. Ming Zhang. 2022. Generational Travel Patterns in the United States: New Insights from Eight National Travel Surveys, USDOT Tier 1 Center: Cooperative Mobility for Competitive Megaregions.
2. Forward Toledo Plan Survey Results. 2023.
3. City of Toledo Complete Street Policy, Ordinance 656-10. Passed 12/21/2010.

Move 2 - Support Public Transit

1. Toledo Area Regional Transit Authority (TARTA). 2021. Report to the Community. Available at https://tarta.com/wp-content/uploads/2022/06/22-TART-126-2021-Report-to-the-Community_fixed2.pdf.
2. Smith Group Team. 2020. Forward Toledo Exploratory Assessment. Available at https://cdn.toledo.oh.gov/uploads/Toledo-Exploratory-Assessment_2021-07-07-204122_usjz.pdf.
3. Capital Region Council of Governments (CRG). 2016. “TOD Factsheet”. Available at https://crcog.org/wp-content/uploads/2016/07/Ch05_FactSheet_TOD.pdf.
4. Daily schedules for Capitol Limited and Lake Shore Limited Routes. Amtrak. 2024. https://www.amtrak.com/ 5.. “FY22 Corridor Identification and Development Program Selections”. Federal Railroad Administration. December 8, 2023. https://railroads.dot.gov/elibrary/fy22-CID-program-selections

Move 3 - Expand Right-of-Way Use

1. Pew Research Poll 2021, Harris Poll 2014.
2. Forward Toledo Plan Survey Results. 2023.
3. Smart Growth America. Complete Streets. Available at https://smartgrowthamerica.org/what-are-complete-streets/.
4. StreetsBlog 2015. Survey: 100 Million Americans Bike Each Year, But Few Make It a Habit. Available at https://usa.streetsblog.org/2015/03/04/survey-100-million-americans-bike-each-year-but-few-make-it-a-habit.
5. Monash University, 2019. More Than a Stripe of Paint Needed to Keep Cyclists Safe. Available at https://www.monash.edu\news\articles\more-than-a-stripe-of-paint-need-to-keep-cyclists-safe.
6. Purdue University, 2019. State Street Redevelopment Project wins prestigious complete streets best project award. Available at https://www.purdue.edu/newsroom/releases/2019/Q4/state-street-redevelopment-project-wins-prestigious-complete-streets-best-project-award.html.
7. Spilker, Shayla, UCLA Fielding School of Public Health, 2016 Open Streets and Local Economics. Available at https://www.880cities.org/images/openstreets-template/pdf/open-streets-local-economies.pdf.

Move 4 - Logistics Hub

1. U.S Government Accountability Office. 1979. Truck Weight and Its Effect on Highways Available at https://www.gao.gov/products/109954.
2. New York City. Department of Finance. Accessed 12/18/2023. Commercial Motor Vehicle Tax (CMVT), Available at https://www.nyc.gov/site/finance/taxes/business-commercial-motor-vehicle-tax-cmvt.page.
3. The Eugene F. Kranz Toledo Express Airport Master Plan. Toledo-Lucas County Port Authority. 2024. https://www.tolmasterplan.com/

Move 5 - Walkable Neighborhoods

1. Congress for New Urbanism. February 8, 2021. Defining the 15-minute city. Available at http://www.cnu.org\publicsquare\2021\02\08\defining-15-minute-city/.
2. AEI Housing Center. November 2021. An Opportunity for an American Renaissance: Walkable Oriented Development. Available at https://www.aei.org/wp-content/uploads/2022/01/Walkable-Oriented-Development-2021.11.17-FINAL-v5.pdf?x91208.

Move 6 - Accessibility Opportunities

1. Steve Wright and Heidi Johnston-Wright. Planning Magazine. February 2018. Inclusive Mobility. Available at https://www.planning.org/planning/2018/feb/inclusivemobility/#:~:text=%22As%20the%20population%20ages%20and,conducive%20to%20safe%20street%20crossings.%22
2. Christo Ventor. Brookings Institution. November 2016. Developing a Common Narrative on Urban Accessibility. Available at https://www.brookings.edu/wp-content/uploads/2017/01/transportation-digital.pdf.
3. Catie Gould. Sightline Institute. February 14, 2022. We Could Fit Lots of Homes in the Middle of Old Strip Malls. Available at https://www.sightline.org/2022/02/14/we-could-fit-lots-of-homes-in-the-middle-of-old-strip-malls/.

Place 1 - Attractive Place to Live

1. Realtor.com. December 4, 2023. Top Housing Markets for 2024. Available at https://www.realtor.com/research/top-housing-markets-2024/.
2. Zillow. October 25, 2020. The Top 10 Most Affordable Metros for Buying a Home. Available at https://www.zillowgroup.com/news/the-top-10-most-affordable-metros/.
3. National Association of Realtors. 2020. Most Favorable Areas for Millennials During the Pandemic. Available at https://www.nar.realtor/research/and-statistics/research-reports/top-10-most-favorable-areas-for-millennials-during-the-pandemic.

Appendix

Appendix B: Citations & Sources

Place 1 - Attractive Place to Live (cont’d)

4. The White House. September 9, 2021. Housing Prices and Inflation. Available at https://www.whitehouse.gov/cea/written-materials/2021/09/09/housing-prices-and-inflation/.
5. Forbes. July 28, 2022. The Best and Most Affordable Places to Live in America. Available at https://www.forbes.com/sites/laurabegleybloom/2022/07/28/the-best-and-most-affordable-places-to-live-in-america-2022/?sh=4d9767116bbf.
6. Go Banking Rates. June 3, 2023. 50 Cheapest Places to Retire Across America. Available at https://www.gobankingrates.com/retirement/planning/cheapest-places-retire/.
7. Forbes. May 8, 2023. Most Affordable Cities for Family Vacations. Available at https://www.forbes.com/advisor/credit-cards/travel-rewards/most-affordable-cities-for-va cation/.
8. City of Toledo. July 2016. Consolidated Plan FY 2010-2015: Community Profile. Available at https://lucascountyhealth.com/wp-content/uploads/2016/07/Toledo-Consolidat ed-Plan-FY2010-2015.pdf.
9. Pew Research Center. April 28, 2020. Millennials overtake Baby Boomers as America’s largest generation. Available at https://www.pewresearch.org/short-r eads/2020/04/28/millennials-overtake-baby-boomers-as-americas-largest-generation/.
10. Pew Research Center. February 14, 2019. Millennial life: How young adulthood today compares with prior generations. Available at https://www.pewresearch.org/social-trends/2019/02/14/millennial-life-how-young-adulthood-today-compares-with-prior-generations-2/.
11. Eventbrite. 2014. Millennials - Fueling the Experience Economy.
12. Brookings Institute, Metropolitan Policy Program. The Millennial Generation: A demographic bridge to America’s diverse future. 2018. Available at https://www.brookings. edu/wp-content/uploads/2018/01/2018-jan_brookings-metro_millennials-a-demographic-bridge-to-americas-diverse-future.pdf.

Place 2 - Strengthen Neighborhoods

1. Marlon G Boarnet, Kenneth Joh, et. al. Fall 2011. Retrofitting the Suburbs to Increase Walking. Access Magazine. University of California Transportation Center. Available at https://www.accessmagazine.org/fall-2011/retrofitting-suburbs-increase-walking-2/.

Place 3 - Addressing Housing Affordability

1. Wall Street Journal. 2021. U.S. Housing Market Is Nearly 4 Million Homes Shortof Buyer Demand. Available at https://www.wsj.com/articles/u-s-housing-market-is-nearly-4-million-homes-short-of-buyer-demand-11618484400.
2. Joint Center for Housing Studies of Harvard University. America’s Rental Housing 2020 Report. Available at https://www.jchs.harvard.edu/americas-rental-housing-2020.
3. City of Toledo Building Inspection Department. 2022. Building Permit Data. Demolitions 1975 – 2021. New Builds 2016-2021.
4. National Association of Home Builders. 2023. New and Existing Single Family Home Prices, U.S. Available at https://www.nahb.org/-/media/NAHB/news-and-economics/docs/housing-economics/sales/median-prices.pdf.
5. Zillow. 2022. Review of listing price for new single-family homes in Lucas County. Accessed 10/11/22. Available at https://www.nahb.org/-/media/NAHB/news-and-economics/docs/housing-economics/sales/median-prices.pdf.
6. U.S. Census Department. Five Year American Community Survey Data 2021 for Toledo. available at https://data.census.gov/.
7. Realtor.com data from St. Louis Federal Reserve. Available at https://fred.stlouisfed.org/release/tables?rid=462&eid=1138280.
8. Brookings Institute. 2019. “Gentle” Density Can Save our Neighborhoods Report.
9. Urban Institute. 2018. Homeownership and the American Dream. Available at https://www.urban.org/research/publication/homeownership-and-american-dream.
10. Joint Center for Housing Studies Harvard University. 2013. Is Homeownership Still an Effective Means of Building Wealth for Low-income and Minority Households? (Was it Ever?). Available at https://www.jchs.harvard.edu/sites/default/files/hbtl-06.pdf.

Place 4 - Business Creation

1. The Toledo Lucas County Plan Commissions completed an analysis using Lucas County AREIS data for current use and official zoning designations for property.

Place 5 - Funding Big Ideas

1. Oklahoma City. 2023. Metropolitan Area Projects History. Available at https://www.okc.gov/government/maps-3/maps-history.

Place 6 - Workforce Opportunities

1. Toledo Chamber of Commerce. 2018. Toledo Talent Alignment Strategy. Available at https://www.toledochamber.com/uploads/6/7/4/4/67445535/supply-demand_gap_analysis_report.pdf.
2. Toledo Region Comprehensive Economic Development Strategy. Available at https://www.toledochamber.com/uploads/6/7/4/4/67445535/supply-demand_gap_analysis_report.pdf.
3. Pittsburg Innovation District. What is an innovation district? Accessed 10/3/23. Available at https://pittsburgh.id/about-the-district/.

Appendix B: Citations & Sources

Place 6 - Workforce Opportunities (cont’d) 4. Toledo Blade. July 15, 2023. Big stakes: Toledo makes case for $130 million to become new tech hub. Available at https://www.toledoblade.com/business/development/2023/07/15/big-stakes-toledo-makes-case-for-130-million-to-become-new-tech-hub/stories/20230712125.

Place 7 - Expand Areas for Manufacturing

1. City of Toledo et. al., Toledo Region 2021 Comprehensive Economic Development Strategy Report. Available at https://cdn.toledo.oh.gov/uploads/documents/RAISE/Appendix-C/2021-Toledo-Region-CEDS-Report.pdf.
2. Toledo Blade. 2023. Once-in-a-generation project aims to bolster NW Ohio economy. Available at https://www.toledoblade.com/local/transportation/2023/02/05/once-in-a-generation-project-bolstering-nw-ohio/stories/20230204010.

Place 8 - Inclusive Communities

1. American Community Survey. 2019 5-Year Data. Available at https://data.census.gov/.
2. Center for Disease Control and Prevention. 2020. Disability and Health Overview. Available at https://www.cdc.gov/ncbddd/disabilityandhealth/disability.html.
3. University of Washington. 2022. What is Universal Design Available at https://www.washington.edu/doit/what-universal-design-0.
4. Brown, Karen Destorel, 2001. Expanding Affordable Housing Through Inclusionary Zoning: Lessons from the Washington Metropolitan Area. The Brookings Institute Center for Urban and Metropolitan Policy.
5. National Multifamily Housing Council, 2021. Housing Affordability Tool Kit. Available at https://housingtoolkit.nmhc.org/.
6. Byrne, Fargo, Montgomery, Munley, and Culhane, 2014. The Relationship between Community Investment in Permanent Supportive Housing and Chronic Homelessness. Published in the Social Service Review, Vol. 88, No. 2.

Play 1 - Park Access

1. Toledo Lucas County Plan Commissions. 2023. Analysis of Lucas County Auditor data.
2. Trust for Public Land. 2023. 10-Minute Walk. Available at https://10minutewalk.org/.
3. Metroparks Toledo. 2019. N. Toledo Park Will Complete 'Park Within 5 Miles' Promise. Available at https://metroparkstoledo.com/discover/blog/posts/n-toledo-park-will-complete-park-within-5-miles-promise/.
4. Urban Land Institute. 2016. Active Transportation and Real Estate: The Next Frontier.
5. City of Portland. 2023. Bike and Walk Maps of Portland. Available at https://www.portland.gov/transportation/walking-biking-transit-safety/bike-and-walk-maps-portland.
6. City of Portland. 2023. What are Neighborhood Greenways? Available at https://www.portland.gov/transportation/what-are-neighborhood-greenways.
7. Metroparks Toledo. 2023. The Glass City Riverwalk. Available at https://www.gcrtoledo.com/about.
8. City of Milwaukee. 2023. Welcome to Milwaukee's River Walk. Available at https://city.milwaukee.gov/DCD/Projects/RiverWalk.

Play 2 - Support Creative Economy

1. UNCTAD. 2022. Creative Economy Outlook 2022. Available at https://unctad.org/topic/trade-analysis/creative-economy-programme.
2. Arts Impact Ohio. 2018. Ohio's Creative Economy.
3. Better Block. 2021. MLK Food Park. Available at https://www.betterblock.org/mlkfoodpark.
4. Mass Cultural Council. 2023. Artist Space Guide. Available at https://massculturalcouncil.org/artists-art/artist-space-resources/artist-space-guide/zoning-code-and-permitting/.
5. Detroit Riverfront Conservancy. 2023. Dequindre Cut Freight Yard. Available at https://detroitriverfront.org/DCFY?fbclid=IwAR0wPqAgv4ZIO3IZl8FleYnmPlYjyGCmvFa-FFVa2XA3lUjqs-_H_jlhA1s.
6. Barkholz, David. Toledo Blade. November 23, 2022. Outdoor outfitter for novice and serious enthusiasts opening shop downtown. Available at https://www.toledoblade.com/business/development/2022/11/23/outdoor-outfitter-for-serious-enthusiasts-opening-shop-in-downtown-toledo/stories/20221122144.

Play 3 - Promote Recreational Opportunities

1. Metroparks Toledo. October 28, 2020. Metroparks Receives National Gold Medal Award. Available at https://metroparkstoledo.com/discover/blog/posts/metroparks-receives-national-gold-medal-award/.
2. Metroparks Toledo. 2023. Maumee River Water Trail. Available at https://mpdta.maps.arcgis.com/apps/Cascade/index.html?appid=b00a542678124619aa19cdffda4cd499.
3. Michigan Public Radio. November 3, 2013. Lake Erie has 2% of the water in the Great Lakes, but 50% of the fish. Available at https://www.michiganradio.org/environment-science/2013-11-05/lake-erie-has-2-of-the-water-in-the-great-lakes-but-50-of-the-fish.

Appendix

Appendix B: Citations & Sources

Play 3 - Promote Recreational Opportunities (cont’d) 4. Game and Fish Magazine. January 1, 2022. Top 100 Best Places to Fish in America. Available at https://www.gameandfishmag.com/editorial/top-100-places-to-fish-in-amer ica/389441. 5. City of Toledo. 2022. Toledo Recovery Plan. Available at https://cdn.toledo.oh.gov/uploads/documents/Finance/Mayors-Recovery-Plan-10-13-21.pdf.

Play 4 - Highlight Regional Tourism

1. Tourism Economics. 2018. The Economic Impact of Tourism in the Lake Region of Ohio.
2. Tourism Ohio. 2023. 2021 Economic Impact Data. Available at https://ohio.org/static/uploads/01232022_Tourism_Marketing_ROI_v5.pdf.
3. Toledo Blade. 2021. Gov. DeWine visits Toledo to kick off summer tourism. Available at https://www.toledoblade.com/local/community-events/2021/05/05/Gov-DeWine-visits- Toledo-to-kick-off-summer-tourism/stories/20210505114.
4. a. Toledo Zoo. 2022. Annual Report. Available at https://www.toledobzoo.org/media/hocmoijc/toledozoo_annualreport_2022-final-1.pdf. b. Toledo Blade. April 4, 2022. Fifth Third Field, home of the Mud Hens, hits 20th anniversary. Available at https://www.toledoblade.com/sports/mud-hens/2022/04/03/ fifth-third-field-mud-hens-stadium-celebrates-20th-anniversary/stories/20220402002. c. Toledo Blade. 2022. How the Walleye are using last year’s finals loss as a motivating tool. Calculated using average regular game attendance and number of games per season. Available at https://www.toledoblade.com/sports/walleye/2022/11/02/how-the-walleye-are-using-last-year-s-finals-loss-as-a-motivating-tool-this-sea son/stories/20221101141. d. The Biggest Week in Birding. 2024. 2024 Visitor’s Guide. Available at https://www.biggestweekinamericanbirding.com/visitors-guide-magazine.html. e. Toledo Art Museum. 2022. Annual Report. Available at https://annualreport.toledomuseum.org/.
5. Indianapolis Cultural Trail. 2023. Available at https://indyculturaltrail.org/.

Play 5 - Support Childhood Development

1. American Community Survey. 2019 5-Year Data. Available at https://data.census.gov/.
2. Toledo Area Regional Transit Authority (TARTA). 2023. Youth Summer Blast Pass. Available at https://tarta.com/blast/.
3. The Arts Commission. 2023. Young Artists at Work. Available at https://theartscommission.org/programs/young-artists-at-work.
4. City of Boulder Colorado. 2023. UNICEF Child Friendly Cities Initiative. Available at https://bouldercolorado.gov/projects/unicef-child-friendly-cities-initiative.
5. University of Colorado. 2023. Fresh Perspectives: Growing Up Boulder Involved Youth in City Planning. Available at https://outreach.colorado.edu/article/ fresh-perspectives-growing-up-boulder-involves-youth-in-city-planning/.

Play6 - Encourage Social Opportunities

1. Latham and Layton. Social Infrastructure and Public Spaces. DOI 10.1111/gec3.12444 Available at https://www.canr.msu.edu/center_for_local_government_finance_and_ policy/uploads/files/Latham and Layton Social infrastructure.pdf.
2. McCormick. 2020. Room to Roam Published by the Lincoln Institute of Land Policy, Available at https://www.lincolninst.edu/publications/articles/2020-10-room-roam-pan demic-urban-parks-what-comes-next.
3. Trust for Public Land. 10-Minute Walk. Our Research. Available at https://10minutewalk.org/#Our-research.
4. Houston Parks. 50/50 Park Partners. Available at https://houstonparksboard.org/5050-park-partners/.

Sustain 1 - Water Belt

1. United States Census Bureau. City and Town Population Totals:2020-2021. Available at https://www.census.gov/data/tables/time-series/demo/popest/2020s-total-cities- and-towns.html.
2. American Rivers. 2023. Maumee River. Available at https://www.americanrivers.org/river/maumee-river/.
3. Forward Toledo Plan Survey Results. 2023.

Sustain 2 - Reduce Pollution

1. Toledo Waterways Initiative. Available at https://www.toledowaterwaysinitiative.com/.
2. United States Environmental Protection Agency, Stormwater Protection: Urbanization and Stormwater Runoff. Available at https://www.epa.gov/sourcewaterprotection/ urbanization-and-stormwater-runoff.
3. Toledo Municipal Code, Part 11 Chapter 1106. Toledo Zoning Code, Intensity and Dimensional Standards.
4. McCann, Thomas. Penn State Extension, 2018. Green Stormwater Infrastructure (GSI) – What’s it all about. Available at https://extension.psu.edu/green-stormwater-infra structure-gsi-whats-it-all-about.
5. Toledo Municipal Code, Part 11 Chapter 1108. Toledo Zoning Code, Landscaping and Screening.

Appendix B: Citations & Sources

Sustain 2 - Reduce Pollution (cont'd)

6. U.S. Department of Transportation, 2015. Cleaner Air. Available at https://www.transportation.gov/mission/health/cleaner-air.
7. Brewer, Mackenzie et al, 2017 March. Health Place. Issue 44: 86-93. “Does neighborhood social and environmental context impact race/ethnic disparities in childhood asthma?” Available at https://www.ncbi.nlm.nih.gov/pmc/articles/PMC6728803/pdf/nihms-1536348.pdf
8. Strain, Larry FAIA. 10 Steps to Reducing Embodied Carbon. Published by the American Institute of Architects. Available at https://aiacalifornia.org/what-you-can-do-right-now/embodied-carbon-definitions-and-facts/.
9. State of Minnesota. Minnesota Storm Water Manual. Available at https://stormwater.pca.state.mn.us/index.php?title=Multiple_benefits_of_green_infrastructure_and_role_of_green_infrastructure_in_sustainability_and_ecosystem_services.

Sustain 3 - Healthy Food Access

1. Toledo 20/20 Comprehensive Plan Update. 2011.
2. Jilcott Pitts, S.B., Acheson, M.L.M., Ward, R.K. et al. 2015. Disparities in healthy food zoning, farmers’ market availability, and fruit and vegetable consumption among North Carolina residents. Arch Public Health 73, 35. Available at https://doi.org/10.1186/s13690-015-0085-9.
3. BTG Research Brief. April 2012. Zoning for Healthy Food Access Varies by Community Income. Available at https://bridgingthegap.ihrp.uic.edu/_asset/n5qtpc/btg_food_zoning_final-0612.pdf.
4. Lisa M. Feldstein. 2013. Zoning and Land Use Controls: Beyond Agriculture. 65 Me. L. Rev. 467. Available at https://bridgingthegap.ihrp.uic.edu/_asset/n5qtpc/btg_food_zoning_final-0612.pdf.
5. Mark Hinshaw and Brian Vanneman. March 2010. The Supermarket as a Neighborhood Building Block. Planning Magazine. Available at https://www.milwaukieoregon.gov/sites/default/files/fileattachments/community_development/page/33421/neighborhood_bldg_block.pdf.
6. Health Affairs. September 30, 2021. Low-Density Zoning, Health, And Health Equity. Available at https://www.healthaffairs.org/content/forefront/low-density-zoning-health-and-health-equity.
7. Minneapolis School of Public Health, University of Minnesota. 2018. The Minneapolis Staple Foods Ordinance Evaluation Study. Available at https://lims.minneapolismn.gov/Download/FileV2/20119/Staple-Foods-Ordinance-Fact-Sheet.pdf.
8. Ohio Food Policy Network. October 2023. What is a local food council? Available at https://ohiofpn.org/local-councils/.
9. Department of Planning. City of Baltimore, Maryland. Overview of Baltimore Food Policy Initiative (BFPI). Available at https://planning.baltimorecity.gov/baltimore-food-policy-initiative/about.
10. Department of Planning. City of Baltimore, Maryland. 2022 Accomplishments. Available at https://www.dropbox.com/s/otsre5uacaypkxe/list%20of%20accomplishments%202022_Final.pdf?e=1&dl=0.

Sustain 4 - Promote Native Plants

1. Gunpowder Riverkeeper. July 6, 2021. It’s a Great Time to Take the Native Plant Pledge! Available at https://gunpowderriverkeeper.org/its-a-great-time-to-take-the-native-plant-pledge.
2. The Importance of Native Plants, Clean Water Education Partnership (CWEP). Accessed October 2023. Available at https://nc-cleanwater.com/2019/01/25/the-importance-of-native-plants. 3.改进 Bagne, K.; Ford, P.; Reeves, M. November 2012. Grasslands. U.S. Department of Agriculture, Forest Service, Climate Change Resource Center. Available at https://www.fs.usda.gov/ccrc/topics/grasslands-and-climate-change.
3. East Multnomah Soil & Water Conservation District. What’s so great about native plants? Accessed October 2023. Available at https://emswcd.org/native-plants/native-plant-benefits/.
4. Shephard, M. Xerces Society. April 2022. For Wildlife And Humans, Native Plants Are A Key To Climate Resilience. Available at https://www.xerces.org/blog/for-wildlife-and-humans-native-plants-are-key-to-climate-resilience.
5. Sustainable Development Code. Native Plants/Vegetation. Accessed October 2023. Available at https://sustainablecitycode.org/brief/require-use-of-native-plants/.

Sustain 5 - Preserve Open Space

1. University of Washington, Green Cities: Good Health. Collection of studies and citations related to impacts of open space on community quality of life. Accessed July 2023. Available at https://depts.washington.edu/hhwb/.
2. Stacker.com. 2020. Major Cities with the Most Accessible Public Parks. Available at https://stacker.com/lifestyle/major-cities-most-accessible-public-parks.
3. National Public Radio. 2019. As Rising Heat Bakes U.S. Cities the Poor Often Feel It Most. Available at https://www.npr.org/2019/09/03/754044732/as-rising-heat-bakes-u-s-cities-the-poor-often-feel-it-most.
4. Journal of the American Planning Association. 1996. Impervious Surface Coverage: The Emergence of a Key Environmental Indicator. Issue 2.
5. Metroparks Toledo. Oak Openings Preserve Metropark. Available at https://metroparkstoledo.com/explore-your-parks/oak-openings-preserve-metropark/.

Appendix

Appendix B: Citations & Sources

Sustain 6 - Improve Tree Canopy

1. Ernest Bielinis, Norimasa Takayama, et. al. The effect of winter forest bathing on psychological relaxation of young Polish adults. Urban Forestry & Urban Greening, Volume 29. January 2018. Available at https://www.sciencedirect.com/science/article/abs/pii/S1618866717304296.
2. Simone Kuhn, Sandra Duzel, et. al. In search of features that constitute an "enriched environment" in humans: Associations between geographical properties and brain structure. Scientific Reports. April 2017. Available at https://www.nature.com/articles/s41598-017-12046-7.
3. Omid Kardan, Peter Gozdrya, et. al. Neighborhood greenspace and health in a large urban center. Scientific Reports. July 2015. Available at https://www.nature.com/articles/srep11610.
4. Tania Schusler, Leah Weiss, et. al. Examining the association between tree canopy, parks, and crime in Chicago. Landscape & Urban Planning. Vol 170. February 2018.
5. National Public Radio. 2019. As Rising Heat Bakes U.S. Cities the Poor Often Feel It Most. Available at https://www.npr.org/2019/09/03/754044732/as-rising-heat-bakes-u-s-cities-the-poor-often-feel-it-most.
6. Davey Tree. I-Tree Benefit Estimator. Energy savings based on tree proximity less than 40' from the primary structure. Accessed 07/12/2023. Available at https://mytree.itreetools.org/.
7. David J Nowak & Eric J Greenfield. US Urban Forest Statistics, Values, and Projections. Journal of Forestry. Vol 116. Issue 2. March 2018.
8. Toledo Blade. Toledo to use federal funds to grow its tree canopy. February 15, 2023. Available at https://www.toledoblade.com/local/city/2023/02/15/federal-funds-tree-canopy/stories/20230215106.
9. City of Toledo. Toledo Awarded $6.1 Million Grant to Enhance Urban Tree Canopy. September 14, 2023. Available at https://toledo.oh.gov/news/2023/09/14/city-of-toledo-awarded-6-1-million-grant-to-enhance-urban-tree-canopy.

Sustain 7 - Energy Efficient Development

1. International Energy Association. Energy Systems and Buildings. Accessed September 11, 2023. Available at https://www.iea.org/energy-system/buildings#tracking.
2. Forbes. March 9, 2023. Monthly Utility Costs in the U.S. By State. Available at https://www.forbes.com/home-improvement/living/monthly-utility-costs-by-state/.
3. International Building Code by Reference of Ohio Building Code Chapter 31 Section 3115 – Intermodal Shipping Containers. Adopted 8/11/23.
4. Interstate Renewable Energy Council. February 2020. National Solar Job Census 2019. Available at https://irecusa.org/resources/national-solar-jobs-census-2019/.

Appendix C: Data Dashboard

Short Survey

How should city resources be used towards old houses?

⬚ figure

Majority (51%) of respondents prefer renovation of old houses.

• Renovating 51%
• Demolishing 22%
• Case by case 16%
• Preserving as-is 8%
• Other 3%

Percentage of People Having Difficulty In Finding A Place To Live By Income Level

⬚ figure

Reasons For Difficulty In Finding A Place To Live

⬚ figure

• Housing too expensive 58%
• Housing type unavailable 18%
• Multiple/All three 11%
• Location wasn't convenient 5%
• Other 5%
• Discrimination 2%

As the income level goes higher, people face less difficulty in finding a place to live. This can be associated with the fact that ‘Housing too expensive’ is the top reason of having difficulty in finding a place to live.

Do you think homes for 2, 3, and 4 families should be allowed in more areas?

⬚ figure

New generations want to see more multi-family housing.

More than 50% people from all age groups think homes for 2, 3, and 4 families should be allowed in more areas. The percentage is over 70% for respondents under 35 years of age. Not surprisingly, people with lower income levels want to see multi-family housing more compared to higher income people.

Do you think homes for 2, 3, and 4 families should be allowed in more areas?

⬚ figure

Appendix C: Data Dashboard

Short Survey

More than 50% of Toledoans visit Lake Erie or Maumee river at least 4x per year. 60%* of them do not live near the river.

*Among responses that provided a zipcode

⬚ figure

What do you enjoy in Maumee River or Lake Erie?

Where are they visiting in their free time?

To identify the potential focus and scope of improvement regarding recreation, we asked people about their preference of recreational activity and favorite visiting spots.

What is your favorite place to go in free time?

⬚ figure

44% of Toledoans go to the parks or Metroparks in their free time

Appendix C: Data Dashboard

Short Survey

What do you like about your neighborhood?

⬚ figure

33% of Toledoans like their neighborhood’s easy access to amenities.

When asked about the favorite thing about their neighborhoods, 33% of respondents said they like that their neighborhood has easy access or close proximity to different amenities. 26% of the respondents like their neighbors and the community bonding.

What can the community do to be more environmentally sustainable?

⬚ figure

27% of Toledoans want improved active transportation and public transit for environmental sustainability.

Maximum percentage of respondents said they would like to see improved walkability, bikeability, and more efficient public transit system for a more sustainable environment. 23% of respondents focused on cleanliness of property and recycling of waste.

Appendix

Appendix C: Data Dashboard

⬚ figure

Chicago, IL 1 "I like Chicago because of the diversity of experiences that can all be accessed by public transportation." • Great public transportation • Variety of activities and entertainment opportunity • Diverse and unique neighborhoods

Ann Arbor, MI 2 "It's a big town with a small town vibe." • Pedestrian-friendly • Diverse activities, shopping, and restaurants • Arts and culture

Columbus, OH 3 "Columbus has done a great job of revitalizing several areas in its City's core." • Cultural diversity • Shopping and entertainment opportunities

Detroit, MI 4 "Detroit has come a long way from where they were before." • Diverse activities and entertainment opportunities • Waterfront attractions

New York, NY 5 "It's the city that never sleeps." • Efficient public transportation and walkability • Activities and entertainment opportunities • Diversity and vibrance

Appendix C: Data Dashboard

Place

Would you support an innovation or technology district in Toledo?

⬚ figure

94% of Toledoans would support an Innovation or Technology District.

Majority of respondents said they would support an Innovation or Technology District in Toledo. We also asked them about a location where they would prefer to see the Innovation or Technology District. Downtown gets the maximum vote (25%), followed by Central City (12%). 10% of the respondents would like to see it in any underserved area of Toledo.

87% of Toledoans would support “quick permit” zones to help with business creation in underinvested parts of the city.

Would you support “quick permit” zones to help with business creation in underinvested parts of the city?

⬚ figure

If a vacant building like this was near your house, would you support a business here, even with no parking on the property?

⬚ figure

While 85% of people responded yes, the percentage is much higher for 18-44 year old's.

⬚ figure

Appendix C: Data Dashboard

Sustain

Why is walkability important to you?

⬚ figure

Are you able to walk to any businesses or services in your neighborhood?

⬚ figure

⬚ figure

Walkability is important to more than 80% of Toledoans from all age groups.

More than 80% of respondents from all age groups said that walkability is important to them. 41% of them consider walkability important because it is beneficial for health and environment. When asked, 70% of the respondents said they are able to walk to any businesses or services in their neighborhood.

Appendix C: Data Dashboard

Build

Do you feel new buildings look better today?

⬚ figure

More than 60% of millennials think that new buildings look better today.

60% of the respondents said they think new buildings look better. The age breakdown shows that more than 60% of people from 25 to 44 years of age responded yes. While people like the clean and modern design of new buildings, they also want to see more character in the designs.

Why do new buildings look better?

⬚ figure

72% Voted for Site A

72% of the respondents would like to see more buildings like Site A in the City. A major reason for the preference is the character and historic aspect of the building. Besides, more functional mixed-use development and pedestrian-friendly design is also preferable to the respondents.

Site A

⬚ figure

Site B

⬚ figure

Why would you like to see Site A?

⬚ figure

Appendix ❯❯❯❯❯

Appendix C: Data Dashboard

Build

⬚ figure

To understand how Toledo can keep up with the changing housing needs, and where those changes should happen, we asked:

Where do you think “missing middle” housing may be most appropriate?

⬚ figure

Which store do you think is in a better neighborhood?

⬚ figure

What other factors/elements should be included in the review of new developments?

⬚ figure

Appendix C: Data Dashboard

Move

Why would you use a cultural trail?

⬚ figure

More than 80% of Toledoans from all age groups would use a cultural trail.

Majority of the respondents said they would use a cultural trail in Toledo. Transportation was chosen as the main purpose for using a cultural trail. Some respondents also think a cultural trail would add value to the city and it can be used for entertainment as well.

How could you see yourself utilizing more bike/pedestrian infrastructure?

⬚ figure

Majority of respondents think slower streets (i.e., less than 25mph) should be used to fill in the gaps of the existing sidewalks and bike trails.

SHOULD SLOWER STREETS BE USED?

Appendix

Appendix C: Data Dashboard

Play

Do you think more land along the lake/river should be a public amenity?

⬚ figure

93% of Toledoans think more land along the lake & river should be a public amenity.

Highest percentage of respondents said they would like to see more parks and open spaces along the lake/river. 25% of the respondents would like to see more restaurants and retail businesses along the lake/river.

What ways could the city better connect the existing parks to the neighborhoods?

⬚ figure

What uses would you like to see more along the lake/river?

⬚ figure

Should the City enact additional policies and regulations for new construction that does more to prioritize the health of the environment?

⬚ figure

To explore an identity shift from “Rust Belt” to “Water Belt” due to Toledo’s unique position on the Great Lakes and the ways this shapes Toledo’s culture, one strategy that was discussed is the utilization of existing waterfront land to increase public access and recreation on the Maumee River and Lake Erie.

Appendix C: Data Dashboard

Key Ideas from WikiMap Comments

• Demolish or restore abandoned buildings.

• People want to see more mixed-use development.

• More recreational opportunities.

• Grocery store in downtown.

• More greenery and beautification.

• ‘Welcome to Toledo’ gateway/sign.

• More walkable neighborhoods.

• Promote Housing Variety.

• The surveys, index cards, and WikiMap comments all showed that old abandoned buildings are of great concern for majority of people. They want to see them restored, demolished, or redeveloped.

Appendix

Appendix D: Leadership Toledo Summary of Survey Results

⬚ figure

LAND USE PLAN

Summary of Survey Results

May 2023

Appendix D: Leadership Toledo Survey Results

⬚ figure

Information About the Leadership Toledo Signature Program

The Signature Program balances service and volunteerism with personal growth. Through this 10-month program, participants develop a deeper understanding of our region, its strengths, and many of the issues it faces. They also have the opportunity to explore their strengths and talents and use them to improve and enrich our community. Class members from diverse backgrounds come together each month for intensive sessions focusing on our community’s needs and serving those needs.

Each session features both educational and participatory experiences, including dialogue and development of professional relationships among class members. In addition to the regular sessions, participants work in teams to bring their collective knowledge and energy to a not-for-profit group in need of assistance.

Appendix D: Leadership Toledo Survey Results

May 2023

To Whom It May Concern:

As part of the Leadership Toledo Signature Program, we are writing to outline our involvement in Forward Toledo during the 2022-2023 program year. The Leadership Toledo organization exists to cultivate a community of leaders dedicated to authenticity and purpose. Through the Signature Program, participants develop a deeper understanding of our region, its strengths, and many of the issues it faces with the ambition to enhance the community for the better.

As part of the Signature Program, we have had the opportunity to select a project to apply our strengths and talents and use them to improve and enrich our community. We selected to work with the Toledo-Lucas County Planning Commission on Forward Toledo, specifically to (i) assist in gathering high-quality survey responses with a target to exceed 3,000 and (ii) to summarize the resulting survey data into the top community priorities.

The following is a summary of the analysis and work completed by our group over the past 10 months. While this was completed from an unbiased, non-technical city planning perspective, we, like many of the respondents, want to see our community thrive and prosper. We hope this document provides a different perspective that is additive in the plan's development. We are excited to follow the ratification of the land use plan in 2023 and its implementation over the next 10 - 20 years.

Sincerely,

Danny Royer Libbey

Michael Kolena O-I Glass

Jay Smith The Anderson's

Taylor Fitchpatric TARTA

Allie Greiwe ProMedica

Alex Simmons Rehmann

Appendix D: Leadership Toledo Survey Results

Executive Summary

Background

The City of Toledo is in the process of completing an update to its comprehensive land-use plan, referred to as Forward Toledo, which will guide planning in Toledo for the next 20 years. It is the community’s collective statement on what Toledo wishes to be and how it could grow and develop as a city. This marks the third time Toledo has considered formally documenting guiding principles for land use and development, after the last extensive plan like this was adopted in July 2011. In order for Forward Toledo to be successful and well-accepted, it is critical to seek and analyze community feedback. The primary tool utilized to solicit this input was a range of surveys, designed to gather data to develop and prioritize its strategies and goals.

Methodology

The survey was conducted from July 2022 until the end of February 2023, primarily through online Forward Toledo’s website (https://toledo.oh.gov/residents/forward). Traffic was driven to this landing page through advertisements, media releases, distribution of marketing flyers and Forward Toledo business cards, live television interviews, and usage of social media channels. In addition, there were also paper copies of the survey made available at City Hall and various pop-up locations around the city. This effort drove over 3000 unique survey responses, and from those generated significant data and write-in commentary.

Community Priorities

From the synthesis of the data, a few key goals emerged:

► The community loves its parks, and desires continued investment and development of existing / new parks and recreational opportunities, especially along the riverfront

► Renovating and developing vacant buildings will strengthen neighborhoods and make Toledo a more attractive place to live, likely enhancing population growth

► Prioritizing greenspace and open space, along with providing safer, more walkable and bikeable options will enhance sustainability and lessen pollution

Appendix D: Leadership Toledo Survey Results

Demographics of Results | 3,076 Responses

Where do survey respondents reside?

⬚ figure

Note: 2,334 survey responses included zip code; those with 10 or more displayed in above table

Who are the survey respondents?

⬚ figure

n = 2,758 responses included race/ethnicity, and 318 ‘preferred not to say’. It was assumed the preferred not to say had the same distribution. ■ Survey ■ 2021 Census Est.

⬚ figure

n = 2,808 responses included age

⬚ figure

n = 2,651 responses included income

Appendix D: Leadership Toledo Survey Results

Play Survey | This theme focuses on the proposed goals and strategies to increase park access, promote the arts, encourage tourism, and support childhood development

Community Priority Goal

Park Access: Recognize the impacts that nature has on residents' quality of life

What ways could the city better connect the existing parks to the neighborhoods? ⬚ figure n = 576 responses

“Extending bike paths through each metropark is amazing; let’s tie that to downtown.”

“I love Toledo's parks. Ottawa Park needs more love and connectivity. There needs to be a way to bike downtown past the Art Museum, from the UT. The riverfront going north from downtown needs a bikeway all the way to Point Place. Toledo Metro Parks ROCK. I want to move to Toledo because of stuff like this. But I also love bike commuting and can't imagine doing that yet in Toledo unfortunately with my current job in public service.”

Community Priority Goal

Promote Recreational Opportunities: Improve Toledo's recreational and cultural assets for all residents and visitors

Do you think more land along water should be a public amenity? ⬚ figure n = 260 responses

What uses would you like to see more along the lake/river? ⬚ figure n = 495 responses

“We need to improve access and visibility along the Maumee River, especially in the Old South End where the railroad forms a barrier for local residents and overgrowth limits views of the water. There should also be more done to encourage native plantings.”

Appendix

Appendix D: Leadership Toledo Survey Results

Sustain Survey | This theme focuses on maintaining our natural environment, accessing healthy food, and promoting efficient energy

Community Priority Goal Reduce Pollution: Promote land use and transportation options which are environmentally friendly

What strategies would help reduce pollution? ⬚ figure N = 493 responses

“Green infrastructure is needed all over the city to make it a walking-friendly city. Benefits for both people and the environment. We need a high level of greenery both on streets, including trees and planting on streets and buildings as well as regular open green spaces and parks all over the city to make each neighborhood unique and inviting.”

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Community Priority Goal Preserve Open Space: Explore the benefits of open space and natural areas and evaluate practices to promote the preservation of green space alongside future development

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Would you be willing to walk more if streets looked like this in Toledo?

• ■ Yes ■ No

n = 260 responses

Appendix D: Leadership Toledo Survey Results

Place Survey | This theme focuses on the proposed goals and strategies for placemaking, expanding opportunities, and building inclusive neighborhoods

Community Priority Goal Addressing Housing Affordability: Encourage the development of housing at price points achievable for all residents

⬚ figure Would you support renovating vacant buildings near your house to support businesses, even with no parking on the property?

n = 232 responses

“Buildings are vacant because small business can’t afford the outrageous rent prices a lot of these places want. Time to step away from big box and go back to local...”

Community Priority Goal Business Creation: Encourage the creation of new, neighborhood-scale businesses through economic development policies and how land is used

Do you think your neighborhood has enough business? ⬚ figure n = 478 responses

What type of business would you support moving into your neighborhood? ⬚ figure

Appendix D: Leadership Toledo Survey Results

Move Survey | This theme focuses on the proposed goals and strategies for increasing connectivity, supporting public transit, and encouraging walkability

Community Priority Goal

Increase Connectivity: Provide a diverse transportation network that better connects people throughout the community

“Bike Parking is important. Allow outdoor seating at Cafe and restaurants. Trees along the streets are great for traffic calming and reducing the urban heat island effects. Find ways to allow more adaptive reuse of old buildings like the brewery warehouse near the AW Trail! Connect the Amtrak station with downtown and the nearby metro park….”

Should Toledo reflect these changing values through the built environment in order to retain and attract America’s largest demographic?

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n = 256 responses

■ Yes ■ No

Community Priority Goal

Walkable Neighborhoods: Encourage more goods and services within walking distance, promoting independence among residents and sustainable uses of land

How could you see yourself utilizing more bike/pedestrian infrastructure?

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“Walkability, bikeability, access to open space and outdoor recreation opportunities are requirements for attracting and retaining a productive workforce… by developing river/lake access and riverfront multi-use paths protected from traffic …”

Appendix D: Leadership Toledo Survey Results

Build Survey | This theme focuses on the proposed goals and strategies for design, use, and access to affordable housing throughout the city

Community Priority Goal Promote Housing Variety: Promote a diverse variety of well-designed housing to meet the residential needs of all Toledo citizens

“Putting the "missing middle" around places that are developing (such as the Franklin Park area, Secor, the East side Riverbank is key to being sure the new businesses thrive. However, it's also key that those housing developments are affordable for the families of Toledo.”

⬚ figure “Missing Middle” housing

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Where do you think “missing middle” housing may be most appropriate?

• Along major streets with houses and businesses (Detroit, Dorr, Secor, Glendale)
• Within single-family neighborhoods
• At busy corners within single-family neighborhoods
• Other

How should city resources be used toward old houses? ⬚ figure

Community Priority Goal Building Preservation - Strengthen preservation strategies to maintain Toledo’s existing housing stock and commercial buildings

Get Involved

Reach out at forward@toledo.oh.gov with questions and ideas for plan implementation.

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